Skills Strategy Implementation Guidance for Portugal · 2019-03-28 · Fostering digital skills will be key to adapt to the jobs of the future, ... The OECD stands ready to support

OECD Skills Studies

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OECD Skills Studies

Skills Strategy Implementation

Guidance for Portugal

STRENGTHENING THE ADULT‑LEARNING SYSTEM

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Please cite this publication as:OECD (2018), Skills Strategy Implementation Guidance for Portugal: Strengthening the Adult-LearningSystem, OECD Skills Studies, OECD Publishing, Paris,http://dx.doi.org/10.1787/9789264298705-en.

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Series: OECD Skills StudiesISSN 2307-8723 (print)ISSN 2307-8731 (online)

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FOREWORD │ 3

SKILLS STRATEGY IMPLEMENTATION GUIDANCE FOR PORTUGAL © OECD 2018

Foreword

Raising skills is critical to Portugal’s economic success and social well-being. After years

of high unemployment and constrained public finances, Portugal’s economy is now on

the path to recovery. This positive outlook opens a window of opportunity to reinforce

skills policies and continue to foster inclusive growth in Portugal.

As globalisation and digitalisation transform jobs, how societies function and how

individuals interact, Portugal needs to equip its citizens with the right skills so that they

can succeed in the 21st century job market. People will need a well-rounded set of skills,

which includes cognitive skills such as literacy and numeracy as well as social, emotional

and analytical skills. Fostering digital skills will be key to adapt to the jobs of the future,

along with skills in science, technology, engineering and mathematics (STEM).

Increasingly, in our globalised economies and societies, people will also need stronger

global competences, which is why the OECD just launched the OECD PISA Global

Competence Framework for the 2018 Programme for International Student Assessment

(PISA).

Skills are so much more than an economic investment, they are an essential ingredient for

health, well-being and social cohesion, as well as being key to strengthen

competitiveness, boost productivity and foster innovation.

Portugal has put education and skills at the forefront of the political agenda for many

years, and these efforts are paying off. Young Portuguese citizens are now likely to attend

school for longer than the previous generation, and proficiency in reading, maths and

science has increased. Secondary-school curriculum reforms have emphasised key

competencies for the 21st century, from resilience and innovation to intercultural

competence and awareness of environmental sustainability issues.

However, Portugal’s historical deficit in education implies that many of its adult citizens

are at risk of falling behind. Despite the remarkable progress made over the past decade,

more than half of Portuguese adults aged between 25 and 64 have not completed upper

secondary education. With the population ageing and a growing intergenerational divide,

Portugal cannot afford to wait for the next generation to enter the labour market. Portugal

should also address gender gaps, particularly around STEM-related skills, because

women remain underrepresented in these fields.

The adult-learning policies that are now in place show great promise, but more needs to

be done to improve accessibility and flexibility, and to promote the participation of all

adults in learning, especially for those with low skills. A stronger focus on quality and

monitoring outcomes would drive performance and could increase investments in

learning by both firms and individuals.

The effort to make adult learning a responsive and sustainable system cannot be achieved

by government alone: it requires a strong partnership between all the stakeholders,

including every level of government, education and training providers, employers, trade

4 │ FOREWORD


unions, the non-profit sector and learners. While no single action is the answer, a clear

vision and concrete steps taken in concert by all stakeholders can ensure Portugal can

bridge skills gaps and equip citizens, of all ages, with the skills they need to seize the

opportunities of a rapidly changing labour market. A number of such actions are outlined

in this report.

The OECD stands ready to support Portugal as it continues to design, deliver and

implement better skills policies for better lives.

ACKNOWLEDGEMENTS │ 5


Acknowledgements

This report is part of a series of country projects within the OECD programme of work on

“Building Effective National Skills Strategies”.

The OECD is grateful to the Portuguese National Project Team for its invaluable

guidance and input throughout the project, and its help in convening and organising the

stakeholder workshops. We are particularly grateful to the National Project Co-ordinator,

M. Pedro Abrantes of the Ministry of Education, for his strong commitment and his co-

ordination of the National Project Team, which included: M. Nuno Serra of the Office of

the Secretary of State Adjunct to the Prime Minister; M. Rui Lourenço, of the Ministry of

the Presidency and Administrative Modernisation; M. André Costa Monteiro, of the

Ministry of Finance; M. Pedro Barrias, of the Ministry of Science, Technology and

Higher Education; Ms. Alexandra Teixeira of the Ministry of Labour, Solidarity and

Social Security; Ms. Inês Sequeira and M. José Sequeira of the Ministry of Economy and

Ms. Susana Corvelo of the Ministry of Planning and Infrastructure.

The OECD team wishes to thank Minister Tiago Brandão Rodrigues, Minister of

Education, for his continued commitment to this project. We also thank Duarte Bué

Alves, Deputy Permanent Representative at the Permanent Delegation of Portugal to the

OECD, for his support during the project.

We are very grateful to staff members of national organisations, including Gonçalo Xufre

Silva and Ana Cláudia Valente at the National Agency for Qualifications and Vocational

Education and Training (ANQEP), Luísa Ucha of the Ministry of Education, and the staff

of the Public Employment Service and Tourism of Portugal, for their participation in and

support for the project.

Our warm thanks go to the many representatives of government agencies, education and

training institutions, businesses and business associations, unions and community

associations, think tanks and other organisations, and adult learners who generously

shared their insights during bilateral interviews with the OECD team in Lisbon, Setúbal,

Porto and Beja, in stakeholder workshops in Lisbon and Coimbra, and for their written

input and good practices. A full list of participating organisations and stakeholders is

included in Annex D of this report. We would also like to take the opportunity to thank

the staff of ANQEP for their excellent organisation of the stakeholder workshops, and the

Lisbon and Coimbra authorities for their hospitality in hosting these events.

We are grateful to the Directorate-General for Education and Culture and the Directorate-

General for Employment, Social Affairs and Inclusion of the European Commission for

contributing both financial support and expertise throughout the project. We are

especially grateful to Sonia Peressini, Michael Horgan, Jessica Vilela Hansraj, Patricia

Pérez-Gómez and Antonio García Gómez.

6 │ ACKNOWLEGDMENTS


We would also like to thank Beatrice Boots, the director of the National STEM Platform

(Platform Bèta Techniek) in the Netherlands and Tormod Skjerve, of Virke, the

Federation of Norwegian Enterprises, for bringing their international perspectives to the

stakeholder workshop in Coimbra.

While the report draws upon data and analysis from the OECD, Portuguese authorities

and other published sources, any errors or misinterpretations remain the responsibility of

the OECD team.

Patricia Mangeol was the OECD project leader responsible for co-ordinating this OECD

National Skills Strategy project with Portugal. The main authors of this report were

Patricia Mangeol (OECD Directorate for Education and Skills) and Diogo Lourenço,

Adjunct Professor, Faculty of Economy, University of Porto. Bart Staats (Directorate for

Education and Skills) provided statistical support and was the main author of the draft

adult-learning framework included in Annex B.

As team leaders for the project, Andrew Bell provided analytical and editorial guidance

during the drafting process and Joanne Caddy provided guidance in designing and

delivering workshops and inter-ministerial meetings. Montserrat Gomendio (Head of the

OECD Skills Centre and Deputy Director of the Directorate for Education and Skills),

Dirk Van Damme (Head of the Skills Beyond School Division) and Deborah Roseveare

(Head of the Centre for Educational Research and Innovation) provided thought

leadership with Andreas Schleicher (OECD Director for Education and Skills) and

Stefano Scarpetta (OECD Director for Employment, Labour and Social Affairs) ensured

strategic oversight for the project.

The preparation of the Skills Strategy Implementation Guidance for Portugal:

Strengthening the Adult-Learning System drew upon the knowledge, input and comments

of a broad cross-directorate OECD team, including: Cláudia Sarrico, who also contributed

to the missions of the OECD in Portugal, Thomas Weko, Simon Roy, David Liebowitz,

Gonçalo Lima, Paulo Santiago, Anthony Mann, Ben Game, Raffaele Trapasso and

Ricardo Espinoza (Directorate for Education and Skills); Glenda Quintini and Alessia

Forti (Directorate for Employment, Labour and Social Affairs); Sónia Araújo and Ben

Westmore (Economics Department); Bert Brys and Pierce O’Reilly (Centre for Tax

Policy and Administration); and Elodie de Oliveira (Directorate for Public Governance).

We also thank Luiz de Mello (Economics Department) and Joaquim Oliveira Martins

(Centre for Entrepreneurship, SMEs, Regions and Cities) for sharing their knowledge at

the early stages of the work.

Sarah Zaft, Véronique Quenehen and Sophie Limoges (Directorate for Education and

Skills) provided invaluable support for mission organisation, report layout and design and

publication planning, while Victoria Elliott provided proofreading and editorial support.

TABLE OF CONTENTS │ 7


Table of contents

Foreword ................................................................................................................................................ 3

Acknowledgements ................................................................................................................................ 5

Abbreviations and Acronyms ............................................................................................................. 11

Executive Summary ............................................................................................................................ 15

Chapter 1. Improving adult learning in Portugal: Assessment and Recommendations ............... 19

Raising adult skills is a key to Portugal’s economic growth and social cohesion ............................. 20 Improving skills development in adulthood will require co-ordinated action ................................... 28 Recommendations .............................................................................................................................. 32 References .......................................................................................................................................... 43

Chapter 2. Raising awareness of the value of skills and of adult learning in Portugal ................. 45

Despite improvements, low motivation is still the main barrier to raising participation ................... 46 Improving motivation by raising awareness of the value of skills..................................................... 52 Recommendations .............................................................................................................................. 65 Notes .................................................................................................................................................. 68 References .......................................................................................................................................... 69

Chapter 3. Improving access, quality and relevance of adult learning in Portugal ...................... 73

Portugal’s adult-learning system is diversified, but participation remains low ................................. 74 Practices to improve access to adult-learning opportunities and their quality and relevance ............ 84 Recommendations ............................................................................................................................ 102 Notes ................................................................................................................................................ 106 References ........................................................................................................................................ 107

Chapter 4. Effective governance of adult learning in Portugal ..................................................... 111

Stronger governance and financing mechanisms could enhance the effectiveness of adult learning112 Practices to improve the governance of the adult-learning system .................................................. 122 Recommendations ............................................................................................................................ 130 References ........................................................................................................................................ 132

Chapter 5. Effective financing of adult learning in Portugal ........................................................ 133

Better financing mechanisms are needed to make adult learning more effective ............................ 134 Practices to improve the financing of the adult-learning system ..................................................... 144 Recommendations ............................................................................................................................ 156 References ........................................................................................................................................ 159

Annex A. Map of Portugal’s adult learning system ....................................................................... 161

Annex B. Adult-learning framework and key performance indicators........................................ 167

Annex C. Stakeholder perspectives: Implementation considerations .......................................... 173

8 │ TABLE OF CONTENTS


Annex D. Engagement ....................................................................................................................... 179

Tables

Table 1.1. Action Phase: engagement of Portuguese stakeholders ....................................................... 30 Table 1.2. Summary of stakeholder perspectives .................................................................................. 32 Table 2.1. Motives for participation in adult learning ........................................................................... 49 Table 3.1. CNO, CQEP and Qualifica Centres: results from 2015 to 2017 .......................................... 79 Table 4.1. Shared responsibilities in adult learning in Portugal: Initiatives of seven ministries ......... 118 Table 5.1. Public funding for adult learning: A preliminary inventory ............................................... 136 Table 5.2. Costs and benefits of skills investments for government, individuals and firms ............... 145 Table 5.3. Using public funding to steer the provision of learning ..................................................... 149

Table A C.1. Implementation of recommendation: views of stakeholders by recommendation ......... 177 Table A D.1. National Project Team and Support Organisations........................................................ 179 Table A D.2. Stakeholders engaged during the project ....................................................................... 180

Figures

Figure 1.1. Building a skills strategy for Portugal: Results of the diagnostic phase (2014-15) ............ 20 Figure 1.2. Effect of literacy proficiency on wages, by education attainment ...................................... 22 Figure 1.3. Job polarisation in the past two decades ............................................................................. 24 Figure 1.4. Educational attainment of adults (25-64 year-olds) in Portugal, 2016................................ 25 Figure 1.5. Youth unemployment and long-term unemployed, 2016.................................................... 26 Figure 1.6. Participation rate in education and training 2007--17, and by characteristics .................... 27 Figure 1.7. Labour productivity and labour force development ............................................................ 28 Figure 2.1. Participation rate and reasons for not participating in adult learning ................................ 48 Figure 2.2. Access to information, 2016 ............................................................................................... 58 Figure 3.1. Total enrolments in non-tertiary programmes targeted to adults ........................................ 77 Figure 3.2. Obstacles to participation in adult learning as a percentage of total, 2016 ......................... 77 Figure 3.3. Above-basic overall digital skills, share of individuals, 2016 ............................................ 92 Figure 4.1. Governance performance .................................................................................................. 116

Figure A B.1. Adult-learning Framework: A potential policy tool for Portugal ................................. 169 Figure A B.2. Key performance indicators (KPIs): A preliminary proposal ....................................... 170 Figure A C.1. Characteristics of respondents, by percentage of total respondents ............................. 173 Figure A C.2. Relative importance of recommendation, by percentage of respondents ..................... 174 Figure A C.3. Percentage of respondents who find recommendation very important or essential...... 174 Figure A C.4. Funding and time required for implementation, by percentage of respondents ........... 176 Figure A C.5. Key conditions for success, by percentage of times ranked as top condition ............... 176

TABLE OF CONTENTS │ 9


Boxes

Box 1.1. The impact on skills demand of global value chains and artificial intelligence ..................... 23 Box 1.2. Definition of adult learning ..................................................................................................... 29 Box 2.1. Adult learners’ engagement with learning and implications for policy responses ................. 50 Box 2.2. The functioning of the SANQ ................................................................................................. 54 Box 2.3. The Canadian Occupational Projection System ...................................................................... 55 Box 2.4. Overview of evidence on the returns of adult learning ........................................................... 57 Box 2.5. United States: The Free Application for Federal Student Aid (FAFSA) Experiment ............ 60 Box 2.6. Ireland’s Adult Educational Guidance Initiative .................................................................... 62 Box 2.7. Promoting a culture of lifelong learning in Portugal’s public administration ........................ 64 Box 3.1. The SNQ in practice – overview of key instruments .............................................................. 75 Box 3.2. Portugal’s adult-learning network: The key role of the Qualifica Centres ............................. 78 Box 3.3. Employer-sponsored training in Continental Portugal in 2015 .............................................. 83 Box 3.4. Tourism in Portugal: A sectoral example of skills needs........................................................ 85 Box 3.5. Training Action in Portugal: Focus on employers .................................................................. 86 Box 3.6. Evidence on government-sponsored training programmes ..................................................... 88 Box 3.7. Students’ profile by the end of compulsory schooling in Portugal ......................................... 90 Box 3.8. The digital economy and society: Strengths and weaknesses in Portugal .............................. 92 Box 3.9. Practices from Portugal’s Public Employment and Vocational Training Service (IEFP) ...... 94 Box 3.10. Ireland: WriteOn programme ................................................................................................ 96 Box 3.11. Key Performance Indicators in the Ontario (Canada) college system .................................. 99 Box 3.12. Raising the quality of teaching: Country examples ............................................................ 101 Box 4.1. Mechanisms for effective vertical and horizontal governance ............................................. 113 Box 4.2. Territorial governance in Portugal: CCDRs and CIMs ......................................................... 119 Box 4.3. New multi-stakeholder skills bodies: Ireland ....................................................................... 123 Box 4.4. The Technological Pact in the Netherlands .......................................................................... 125 Box 4.5. Improving vertical co-ordination: The role of CIM do Ave with SANQ implementation .... 126 Box 4.6. Stakeholder engagement in VET for youth and adults: The example of Denmark .............. 127 Box 4.7. Informal partnerships in Portugal and their role in improving opportunities locally ........... 128 Box 4.8. Local partnerships in Portugal: Polytechnics and vocational schools .................................. 129 Box 5.1. Adult learning funding and participation: An international perspective ............................... 135 Box 5.2. The role of the state in funding adult learning: Various perspectives................................... 138 Box 5.3. Tuition fees in Portugal ......................................................................................................... 140 Box 5.4. Costs and benefits of work-based learning: Making it work for employers ......................... 143 Box 5.5. Norway’s approach to encouraging firms’ investments in skills .......................................... 146 Box 5.6. The financing of adult-learning courses in Denmark............................................................ 148 Box 5.7. Community colleges in Canada ............................................................................................ 150 Box 5.8. Subsidies promoting learning in initial education and in adult learning ............................... 152 Box 5.9. Norway’s Basic Competence in Working Life Programme (BKA) ..................................... 155

ABBREVIATIONS AND ACRONYMS │ 11


Abbreviations and Acronyms

The following are the main Portuguese acronyms cited in the report. Other acronyms

cited occasionally are defined where used.

AD&C Agência para o Desenvolvimento e Coesão, I.P. (Agency for Cohesion and

Development)

AE Agrupamento de Escolas (groups of schools)

AES Adult Education Survey

ALMP

Active Labour Market Policies

ANQEP Agência Nacional para a Qualificação e o Ensino Profissional, I.P (National

Agency for Qualifications and Vocational Education and Training)

APCEP Associação Portuguesa para a Cultura e Educação Permanente (Portuguese

Association for Culture and Permanent Education)

APEFA Associação Portuguesa de Educação e Formação de Adultos (Portuguese

Association for Adult Education and Training)

CCDR Comissão de Coordenação e Desenvolvimento Regional (Regional Co-ordination

and Development Commission)

CEDEFOP European Centre for the Development of Vocational Training

CEF Cursos de Educação e Formação de Jovens (education and training courses for

young people)

CES Conselho Económico e Social (Economic and Social Council)

CET Cursos de Especialização Tecnológica (post-secondary non-tertiary vocational

courses)

CIM Comunidade Intermunicipal (intermunicipal community)

CNE Conselho Nacional de Educação (National Council for Education)

CNO Centro Novas Oportunidades (New Opportunities Centre)

CNQ Catálogo Nacional de Qualificações (National Catalogue of Qualifications)

CQ Centro Qualifica (Qualifica Centre)

12 │ ABBREVIATIONS AND ACRONYMS


CIM Comunidade Intermunicipal (intermunicipal community)

CQEP Centros para a Qualificação e o Ensino Profissional (Centres for Qualifications

and Vocational Education and Training)

CSQ Conselhos Setoriais para a Qualificação (Sectoral Councils for Qualifications)

CTesP Cursos Técnicos Superiores Profissionais (short-cycle tertiary education courses)

DESI Digital Economy and Society Index

DGEEC Direção-Geral de Educação (General-Directorate for Education, Ministry of

Education)

DGERT

Direção-Geral do Emprego e das Relações de Trabalho (General-Directorate for

Employment and Labour Relations, in the Ministry of Labour, Solidarity and

Social Security, or MTSSS)

DGES Direção-Geral do Ensino Superior (Directorate-General for Higher Education in

the Ministry of Science, Technology and Higher Education, or MCTES)

DESI Digital Economy and Society Index

GDP gross domestic product

ECTS European Credit Transfer and Accumulation System

ECVET European Credit System for Vocational Education and Training

EFA Cursos de Educação e Formação de Adultos (education and training courses for

adults)

EQAVET European Quality Assurance in Vocational Education and Training

EQF European Qualifications Framework

ESF European Social Fund

EU European Union

FMC Formação Modular Certificada (certified modular training)

GVC global value chains

HPWP high-performing work practices

LFS Labour Force Survey

IAPMEI Agência para a Competitividade e Inovação, I.P. (Agency for Competitiveness

and Innovation, Public Institute)

ABBREVIATIONS AND ACRONYMS │ 13


ICT information and communication technology

IEFP Instituto de Emprego e Formação Profissional (Public Employment Service)

INA Direção-Geral da Qualificação dos Trabalhadores em Funções Públicas

(National Institute of Administration)

INE Instituto Nacional de Estatística (Statistics Portugal, I.P.)

I.P. Instituto Público (Public Institute)

ISCED International Standard Classification of Education

KPI Key Performance Indicators

MCTES Ministério da Ciência, Tecnologia e Ensino Superior (Ministry of Science,

Technology and Higher Education)

ME Ministério da Educação (Ministry of Education)

MEcon Ministério da Economia (Ministry of Economy)

MF Ministério das Finanças (Ministry of Finance)

MPMA Ministério da Presidência e da Modernização Administrativa (Ministry of the

Presidency and of Administrative Modernisation)

MTSSS Ministério do Trabalho, Solidariedade e Segurança Social (Ministry of Labour,

Solidarity and Social Security)

MPI Ministério do Planeamento e das Infraestruturas (Ministry of Planning and

Infrastructure)

NEET Neither employed nor in education or training

NOI Iniciativa Novas Oportunidades (New Opportunities Initiative)

NPT National Project Team

NSS National Skills Strategy

NUTS Nomenclature of Territorial Units for Statistics

PIAAC Programme for the International Assessment of Adult Competencies

PISA Programme for International Student Assessment

POCH Programa Operacional Capital Humano (Human Capital Operational Programme)

14 │ ABBREVIATIONS AND ACRONYMS


PPE Plano Pessoal de Emprego (Individual Employment Plan)

PNR Programa Nacional de Reformas (National Programme of Reforms)

QNQ Quadro Nacional de Qualificações (National Qualifications Framework)

QREN Quadro de Referência Estratégica Nacional (National Strategic Reference

Framework)

RVCC Reconhecimento, Validação e Certificação de Competências (prior learning

recognition, validation and certification)

SANQ Sistema de Antecipação de Necessidades de Qualificações (skills assessment and

anticipation system)

SIGO

Sistema Integrado de Informação e Gestāo da Oferta Educativa e Formativa

(integrated system for the information and management of the education and

training supply)

SME small and medium enterprises

SNQ Sistema Nacional de Qualificações (National Qualifications System)

STEM Science, technology, engineering and mathematics

UFCD Unidades de Formação de Curta Duração (short-term training units)

VET vocational education and training

EXECUTIVE SUMMARY │ 15


Executive Summary

A highly skilled workforce is critical to help Portugal recover fully from the last recession

and meet the challenges of an increasingly global and digital economy. While Portugal

has made great strides in boosting its educational performance, the population is ageing

and the skills gap between educated youth and older adults is widening. Many adults are

at risk of falling behind.

With an economy that is growing again, Portugal has an opportunity to reinforce the

adult-learning system by raising both its accessibility and quality, especially for adults

with low skills. This, in turn, can lead to greater growth and well-being for all.

OECD-Portugal collaboration on a National Skills Strategy Action Phase

The project Building a National Skills Strategy (NSS) for Portugal began under the

XIX Portuguese government. A diagnostic phase was conducted from 2013-2015,

identifying 12 key skills challenges for Portugal. These ranged from improving the

quality of compulsory education to reducing youth unemployment and targeting adult

learning to low-skilled adults.

In 2017, Portugal’s XXI Constitutional Government and the OECD initiated work on the

Action Phase of the NSS to identify concrete actions to improve adult learning.

The NSS Action Phase involved comparative analysis to identify best practices,

collaborative work with an inter-ministerial government team, and extensive engagement

with stakeholders, including government, firms, education and training providers, labour

unions, employers’ associations, academics and civil society organisations.

Improving adult skills is important to boost growth and well-being in Portugal

Successive governments in Portugal have pursued extensive educational reforms. These

range from the extension of compulsory schooling and the reorganisation of the school

network, to the expansion of vocational education and training options and the creation of

new tertiary education pathways. Adult learning has also been a focus, with policies

helping to raise interest in learning among adults. However, participation in adult learning

remains slightly below the European Union average despite the need for many adults to

upskill.

Strengthening adults’ motivation for learning is critical for participation

Participation in adult learning remains unequal in Portugal: those with higher levels of

education are much more likely to participate. Increasing awareness of the benefits of

learning is especially important to overcome motivational barriers. Useful approaches

include providing better information on returns and tailoring information to reach low-

skilled adults. To boost motivation, Portugal can build on the reinforced guidance role of

its adult-learning centres (Qualifica Centres), its system to assess the skills in demand in

16 │ EXECUTIVE SUMMARY


the economy (Sistema de Antecipação de Necessidades de Qualificações, or SANQ), and

recent efforts to develop a culture of lifelong learning in the public administration.

Efforts to raise the accessibility and quality of the system should continue

Mechanisms for recognising the prior learning of adults, modular training opportunities,

and employer-sponsored training have expanded in Portugal. However, barriers continue

to limit participation, especially for the low-educated. Stakeholders reported the lack of

accessible opportunities in some areas and the need to make delivery more flexible and

suited to the needs of users and employers. They often noted the need for more and better

career guidance.

Better co-ordination between the many entities that provide adult learning is needed to

clarify opportunities available to adults and reduce gaps and overlaps in the system.

Stakeholders widely noted the value of a robust performance-monitoring and evaluation

framework for adult learning, building on the work of the National Agency for

Qualifications and Vocational Education and Training (Agência Nacional para a

Qualificação e o Ensino Profissional, I.P., or ANQEP).

Stronger governance and financing mechanisms are needed

The adult-learning system in Portugal involves many actors. Portugal could set

governance structures that facilitate collaboration between central ministries, levels of

government, and between government and stakeholders. Several bodies provide useful

foundations, including the ANQEP and the intermunicipal communities (communidades

intercomunales, or CIMs). Local business and civil society associations could further co-

ordinate their actions to assess skills needs, improve outreach to learners, and develop

flexible approaches to adult learning.

The project found a high reliance of the system on EU funding, important variations in

funding levels over time, and little use of funding as a strategic policy tool to drive

quality and outcomes. Financial incentives to individuals and firms could be better

targeted, aligned with labour-market needs, and complemented by guidance measures to

boost effectiveness. The Qualifica Programme’s renewed focus on adult learning offers

an opportunity to establish a longer-term funding approach, which would involve

contributions from government and social partners.

EXECUTIVE SUMMARY │ 17


Recommendations for action

Overarching recommendation: Develop a coherent adult-learning strategy that

encompasses existing and new measures, and is aligned with other key economic policies.

Awareness of the value of skills and motivation for adult learning

1. Improve the collection, use and dissemination of information on skills performance

and the returns to skills investments, building on existing tools.

2. Improve the dissemination of information by launching a comprehensive

communication campaign to raise awareness of the value of skills and skills

investments and tailoring outreach for specific groups.

3. Enhance measures targeting the public administration and providers of social

services, to raise awareness of the value of upskilling both for themselves and for

their users.

Access, quality and relevance

4. Improve the supply of high-quality, relevant and flexible learning programmes.

5. Improve pathways and the coherence of the adult-learning delivery network.

6. Strengthen quality assurance, including by developing a performance-monitoring and

evaluation system and a set of key performance indicators.

Governance and financing

7. Set up dedicated governance bodies to oversee adult learning: a permanent inter-

ministerial team and a permanent group within an existing multi-stakeholder

institution.

8. Reinforce existing local networks at the municipal level, or develop new ones, to

address current and future needs for skills that align with the local economic

development context.

9. Establish a stable and quality-oriented funding model through a “skills financing

pact”, including targeted financial incentives for learners, employers and providers.

10. Introduce targeted financial incentives for employers (specifically small and medium

enterprises) and individuals (specifically disadvantaged groups) to encourage

provision of, and participation in, training.

1. IMPROVING ADULT LEARNING IN PORTUGAL: ASSESSMENT AND RECOMMENDATIONS │ 19


Chapter 1. Improving adult learning in Portugal: Assessment and

Recommendations

This chapter describes the economic and policy context for this project and

outlines the importance of raising the skills of adults to support economic growth

and social progress in Portugal. It highlights the challenges related to low

educational attainment among adults and low productivity and the need to further

boost participation in adult learning particularly for the low-skilled. It then

provides an overview of the project’s methods, and outlines the report’s policy

recommendations. These include an overarching recommendation and 10 detailed

recommendations across three areas: i) raising awareness of the value of skills

and adult learning, ii) improving the accessibility, quality and relevance of adult

learning and iii) enhancing the governance and financing of the adult-learning

system.

20 │ 1. IMPROVING ADULT LEARNING IN PORTUGAL: ASSESSMENT AND RECOMMENDATIONS


Raising adult skills is a key to Portugal’s economic growth and social cohesion

Improving skills is a complex task. It requires reforms in a range of policy areas, from

education, training and employment to taxation, economic development and innovation.

In Portugal, the need for multifaceted reforms was demonstrated by the results of the first

phase of the OECD-Portugal National Skills Strategy (NSS) project (OECD, 2015[1]).

This work, which engaged a wide range of stakeholders from the public, private and non-

profit sector, concluded in 2015. It identified 12 skills challenges in four areas:

developing, activating and using skills, and strengthening the skills system (Figure 1.1).

The present report builds on these findings and seeks to provide a detailed set of

recommendations for action on improving Portugal’s skills system. It focuses on one area

that offers a good opportunity for improvement: strengthening the adult-learning system.

This topic, identified jointly by Portugal and the OECD, was chosen for a number of

reasons. First, there have been notable improvements since 2015 in employment,

educational attainment, and in the skills performance of youth, as discussed below.

Second, the large number of low-skilled adults in Portugal is a major barrier to growth

and social cohesion. Third, leveraging both new government investments in adult learning

and the National Skills Strategy process, which is both inter-ministerial and involves

active stakeholder engagement, can help Portugal make progress in improving the skills

of the adult population.

Figure 1.1. Building a skills strategy for Portugal: Results of the diagnostic phase (2014-15)



Recent reforms have helped improve employment and educational outcomes

Portugal was hard hit by the global financial crisis, and its public finances were severely

constrained by the 2011-2014 adjustment programme. Since then, the economic outlook

has significantly improved, with GDP growth expected to be about 1.2% in 2017, and

more than 2% in 2018 and 2019.

The crisis had a greater impact on the labour market in Portugal than in most OECD

countries. After peaking in 2013 at above 16%, the unemployment rate dropped

approximately 5 percentage points, to 11% in 2016. In the fourth quarter of 2017,

unemployment had further fallen to 8.6%, compared to a EU28 average of 7.6%.

The fall in unemployment is partly a factor of high emigration rates and participation in

active labour-market policies (ALMPs). The economic recovery in OECD countries also

played a role and in Portugal, employment grew substantially. Between 2013 and 2017,

employment increased by 7.4% (an additional 327 000 people were employed), raising

the total employment rate from 49.7% in 2013 to 53.7% in 2017. Conversely,

unemployment decreased by 45.9% in the same period, which amounted to 392 000

people exiting unemployment (INE, 2017[2]).

Recent employment protection legislation reforms in Portugal may have also started to

produce results (OECD, 2017[3]). These include changes to unemployment benefits that

reduced maximum rates but expanded coverage and strengthened activation measures,

such as short-term training opportunities. Other areas of reform included wage-setting

mechanisms and options for firms to adjust their working time rather than staff numbers.

Current strategies for raising the skills of adults (the Qualifica Programme), promote

digital skills (the InCode2030 Strategy) and boost firms’ competitiveness (Indústria 4.0)

constitute a promising package of reforms to further improve skills, employment and

economic growth.

Educational outcomes have also improved significantly in the last decades. Attainment

rates at upper secondary and tertiary levels have increased substantially, and Portugal has

steadily reduced the school dropout rate since 2000. The skills of Portuguese 15-year-olds

have been steadily improving in science and mathematics, with the average three-year

trend in PISA scores in these skills areas among the highest in the OECD. In 2015,

Portugal scored above the OECD average in all three domains measured by the OECD

Programme for International Student Assessment (PISA) survey.

This progress is due, in part, to Portugal’s significant educational reforms in the last

decades. Compulsory schooling was increased from 9 to 12 years in 2009. In addition,

policies have been introduced to provide support for disadvantaged schools, to reorganise

the school network to strengthen governance and quality, and to introduce national

evaluations and various measures for reducing the school dropout rate, including

expanding vocational and educational training (VET) pathways in secondary school

(OECD, 2014[4]; Santiago et al., 2012[5]).

Skills are essential for better economic and social outcomes

Skills drive well-being

How well Portugal develops its population’s skills, especially those of low-skilled adults,

and puts these skills to productive use, will help determine the rate of its economic

recovery (OECD, 2017[6]). Such a strategy can also avoid leaving people behind at a time



when globalisation and digitalisation are changing the skills needed for success in the

labour market and in life.

Adults with higher levels of literacy, numeracy and problem-solving skills in a

technologically rich environment, and who report using these skills, are more likely to be

employed and earn higher wages than those with lower skill levels. They also tend to be

healthier, are more likely to trust others and to volunteer more. Governments also stand to

gain from a population with higher skill levels: the benefits range from higher tax

revenues to lower social spending (OECD, 2013[7]).

Social and emotional skills, including perseverance, self-esteem and sociability,

communication, curiosity and interest in others are also associated with well-being, and

increasingly, employers view these skills as complementary, and not secondary, to

cognitive skills (OECD, 2015[8]; Deming, 2017[9]).

Many countries have increased their emphasis on raising educational attainment to

improve skills, but the relationship between skills and qualifications is complex. The

OECD Survey of Adult Skills (a product of the Programme for the International

Assessment of Adult Competencies [PIAAC]) shows that a higher level of education has

a positive effect on adults’ proficiency in literacy, numeracy and problem solving in a

technologically rich environment. However, individuals with the same qualifications can

have very different skill levels, and skills have a distinct impact on economic and social

outcomes that is independent of qualifications.

For example, Figure 1.2 shows that for any given level of education, those with higher

levels of skills enjoy higher wages. This reinforces the importance of comprehensive

lifelong learning systems that develop skills both in initial education and throughout life,

in both formal and informal learning contexts.

Figure 1.2. Effect of literacy proficiency on wages, by education attainment

Percentage change in wages associated with a one standard deviation change in proficiency in literacy, by educational attainment

Note: Coefficients from the ordinary least squares (OLS) regression of log hourly wages on proficiency are

directly interpreted as percentage effects on wages. Coefficients adjusted for age, gender, foreign-born status

and tenure. The wage distribution was trimmed to eliminate the 1st and 99th percentiles. The regression

sample includes only employees. Literacy has a standard deviation of 45.76.

Source: OECD (2013), OECD Skills Outlook 2013: First Results from the Survey of Adult Skills,

http://dx.doi.org/10.1787/888932902569.

StatLink 2 http://dx.doi.org/10.1787/888933711731

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Demographic and economic changes make skills more important than ever

In Portugal, as in many other OECD countries, population ageing is creating pressures

that may lead to labour and skills shortages. At the same time, globalisation and

technological change are transforming production processes, destroying some jobs and

industries, and creating new ones. These trends have important consequences for the

skills that are in demand, and those that may be less relevant in the future (see Box 1.1 for

examples).

Box 1.1. The impact on skills demand of global value chains and artificial intelligence

Global value chains make high skills more relevant

In the last two decades, the production of goods and services worldwide has become

increasingly fragmented, and a large part of trade has become organised around global

value chains (GVCs). Countries now specialise in tasks rather than in specific products,

and trade in intermediate goods and services has increased.

New OECD research suggests that participation in global value chains can lead to

productivity gains, which depends on a country’s endowment of skills. Investing in skills

can safeguard against the potential negative impact of global value chains on employment

and inequality for at least three reasons:

1) High-skilled jobs are less exposed to the risk of offshoring, although this may be

changing.

2) Using certain types of skills on the job (e.g. those associated with non-routine tasks

and tasks involving person-to-person contact) makes jobs less likely to be offshored.

3) Developing the skills of workers in small and medium-sized enterprises helps these

firms connect with multinationals and benefit from global value chains.

Countries’ skills endowments and skills-related policies can shape a country’s

specialisation in GVCs and its opportunities to specialise in sophisticated industries, such

as complex business services and high-tech manufacturing industries.

Artificial intelligence may further displace low-skilled workers

The rapidly growing ability of artificial intelligence to conduct tasks is reshaping the

employment structure of economies and the skills requirements for jobs. In an exploratory

study based on an expert assessment of computer capabilities, using data from the Survey

of Adult Skills (PIAAC), 62% of workers in OECD countries were found to use literacy,

numeracy and problem-solving skills in a technology-rich environment at a proficiency

level that computers can currently reproduce or are close to reproducing. Only 13% of

workers were found to use these skills on a daily basis with higher proficiency than

computers, raising concerns about further job displacement.

Sources: (OECD, 2017[10]; Elliott, 2017[11])

The impact of these changes on employment and skills is highly relevant for all OECD

countries. On the one hand, economists have highlighted the positive effect of increased



productivity resulting from globalisation and technological change on aggregate

employment: more jobs are created than destroyed.

On the other hand, job destruction and creation has led to job polarisation. This is notable

in OECD countries: the share of total employment in middle-skilled/middle-paying jobs

has declined and is offset by increases in the shares of jobs requiring both high and low

levels of skills. Most job creation is in the high-skilled, rather than middle- or low-skilled,

category (OECD, 2017[12]; Autor, 2015[13]; Autor and Salomons, 2017[14]). This is likely

to result in further inequality among individuals of different skill levels and calls for

strong skills policies.

Like other countries, Portugal has been experiencing job polarisation, as shown in

Figure 1.3.

The number of jobs in sectors such as construction, agriculture and mining has declined

in the last decade, while the number of jobs in arts, recreation and health services

increased. Yet, in 2016, the largest number of jobs was still in the manufacturing,

wholesale and retail trade sectors (OECD, 2018[15]).

Projections of the European Centre for the Development of Vocational Training

(CEDEFOP) for the next decade suggest that the number of jobs in some of these sectors

with the highest employment will drop and that sectors such as trade, professional and

administrative services, accommodation and real estate will hire more people. The rise in

demand for higher levels of skills is expected to continue, with an increase for technical

and professional occupations (CEDEFOP, 2017[16]).

Figure 1.3. Job polarisation in the past two decades

%-point change share of total employment, 1995-2015

Note: See description of method in source below.

Source: OECD (2017), Employment Outlook 2017, Figure 3.A1.1, Job polarisation by country,

http://dx.doi.org/10.1787/888933477940.


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Low-skilled workers Middle-skilled workers High-skilled workers

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Improving the learning and skills of adults in Portugal with limited education

shows great potential

The low educational attainment of a large percentage of adults in Portugal suggests that

many of these adults have low skills. In 2016, 53% of Portuguese adults aged 25 to 64,

and 31% of 25-34 year-olds, had not attained upper secondary education (Figure 1.4).

Only in Portugal and two other OECD countries, Turkey and Mexico, have most adults

aged 25 to 64 not completed upper secondary education (OECD, 2018[17]).

Figure 1.4. Educational attainment of adults (25-64 year-olds) in Portugal, 2016

Source: OECD (2018), Adult education level (indicator), http://dx.doi.org/10.1787/36bce3fe-en.


Opportunities for individuals to use and further develop their skills, including at work, are

also important. Despite Portugal’s falling unemployment, the rates of youth

unemployment and long-term unemployment remain high compared to the European

average, and will need to be tackled to avoid an erosion of skills over time (Figure 1.5).

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Figure 1.5. Youth unemployment and long-term unemployed, 2016

Source: OECD (2017), Youth unemployment rate (indicator), http://dx.doi.org/10.1787/c3634df7-en; long-

term unemployed (indicator), http://dx.doi.org/10.1787/c3634df7-en.


In Portugal, the participation of 25-64 year-olds in adult learning has grown in the past

decade (for a definition of adult learning, see Box 1.2). It peaked and briefly surpassed

the European Union (EU) average in 2010-2011, then declined and stabilised slightly

below the OECD average in 2013 (see Figure 1.6). While Portugal is close to the EU

average, the large number of low-skilled adults in the country calls for particular attention

to boosting participation.

As in other countries, the least skilled are also the least likely to participate in adult

learning. Consistent with the EU average, people in Portugal with lower levels of

education and jobs requiring lower levels of skills participate the least in adult learning.

Employer-sponsored training represents the majority of all adult learning in Portugal,

with over 800 000 individuals taking part in some form of employer-sponsored training in

2015. Yet, as will be shown in Chapter 3, small and medium enterprises (SMEs), and in

particular, micro-enterprises with fewer than ten employees, are much less likely to

provide training than larger ones. Micro-enterprises represented 83% of all firms in

Continental Portugal in 2015, almost a quarter of the employed workforce (Ministério do

Trabalho, 2017[18]).

0 20 40 60 80

KoreaMexico

CanadaNorway

United StatesNew Zealand

SwedenTurkey

DenmarkAustralia

FinlandUnited KingdomOECD average

EstoniaAustriaPoland

SwitzerlandJapan

LuxembourgGermany

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Czech RepublicFrance

HungarySpain

BelgiumSlovenia

IrelandPortugal

Slovak RepublicItaly

Greece

%

B. Long-term unemployed (share of unemployed)

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JapanIceland

GermanyMexico

SwitzerlandUnited States

Czech RepublicKorea

NetherlandsNorwayAustria

DenmarkAustraliaHungary

OECD averageUnited Kingdom

CanadaNew Zealand

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ChileIrelandLatvia

PolandLuxembourg

SwedenTurkeyFinland

BelgiumSlovak Republic

FrancePortugal

ItalySpain

Greece

%

A. Rate of youth unemployment (15-24 year-olds)

http://dx.doi.org/10.1787/c3634df7-en

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Figure 1.6. Participation rate in education and training 2007--17, and by characteristics

Note: Participation is measured in terms of participation in at least one learning activity in the four weeks

preceding the labour force survey.

Source: Eurostat (2018), EU Labour Force Survey 2017, Participation rate in education and training (last 4

weeks), trng_lfs_01, trng_lfs_02, trng_lfs_03, trng_lfs_14, trng_lfs_04, trng_lfs_05, trng_lfs_06,

trng_lfs_08b, http://ec.europa.eu/eurostat/statistics-explained/index.php/Adult_learning_statistics.


Boosting demand for skills can strengthen incentives to invest in skills

Skills development is not all that matters. The demand for skills, and whether a country’s

economic fabric can absorb skilled workers and use their skills effectively, is just as

critical.

This is a concern in Portugal, which remains one of the European countries with the

highest rates of tertiary-educated individuals who emigrate (11.4% in 2014, according to

data from the Ministry of Science, Technology and Higher Education). In addition, many

employers consulted during the project report a relatively low demand for high-level

skills in many parts of the economy – except for specific sectors well-integrated into the

global economy.

Boosting innovation and productivity both requires and encourages investment in skills.

Portugal faces challenges in raising innovation and productivity, as illustrated in

Figure 1.7. This is critical for supporting economic growth and offering enough good jobs

for highly skilled citizens. By increasing innovation and productivity with such policies

as Indústria 4.0, Portugal could strengthen the incentives for all parties to invest in skills,

as well as discourage emigration.

0

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2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017

%

A. Participation rate, last 4 weeks, Portugal and EU average, 2007-2017

Portugal EU (28)

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Gender Age Education level Labour status Urbanisation (2016) Regions (2016)

%

B. Participation rate, last 4 weeks, by characteristics in Portugal, 2017

Portugal EU (28)

http://ec.europa.eu/eurostat/statistics-explained/index.php/Adult_learning_statistics

http://dx.doi.org/10.1787/888933711807



The alignment of skills policy and economic development policy such as Indústria 4.0 is

essential for achieving better economic outcomes and improving social well-being. The

importance of co-ordinating key policies is emphasised in the overarching

recommendation presented at the end of this chapter.

Figure 1.7. Labour productivity and labour force development

Source: OECD (2018), GDP per hour worked (indicator), http://dx.doi.org/10.1787/1439e590-en; United

Nations (2017), World Population Prospects 2017, https://esa.un.org/unpd/wpp/.


Improving skills development in adulthood will require co-ordinated action

Focus on adult learning: definition and considerations

This National Skills Strategy Action Phase project examines four key themes identified as

particularly relevant to adult-learning policy in Portugal: raising awareness of the value of

skills and adult learning, improving access and quality, strengthening governance, and

enhancing the financing of the system. This report is structured according to these four

topics.

Improving adult learning involves many challenges, from both an analytical and policy

perspective. Many of these are not unique to Portugal.

Defining adult learning is a first issue. The definition used in this report is aligned with

other OECD and European Union definitions. However, it also allows some flexibility for

studying groups of interest to the government of Portugal, such as young adults, who

typically fall outside the definition of adults for the purpose of analysing adult learning

(see Box 1.2). Challenges involving a lack of data, differing perspectives on the goals of

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https://esa.un.org/unpd/wpp/

http://dx.doi.org/10.1787/888933711826



adult learning, and different measurement approaches must be also kept in mind in

assessing the scope and performance of adult learning systems.

Box 1.2. Definition of adult learning

Adult learning is understood in this report as including both formal, non-formal and

informal learning and the diverse contexts in which it is taking place. The purpose of

adult learning may be either employment-related or broader, such as improving civic

participation and improving preparedness for further learning.

Adult learners are defined as adults of between 25 and 64 who have left the initial

education system (either primary, secondary, post-secondary or tertiary level) and are

engaged in learning. However, for this project, the government noted the importance of

adult learning for a broader group, including those of 18 to 24 and 64 to 75. For reasons

of data availability, this report essentially focuses on the 25 to 64 age group. However,

where available, it discusses groups that fall into the broader government definition, for

example young adults who are neither employed nor in education or training (NEET).

In many OECD countries, adult learning has proved to be a challenging policy area

involving complex problems of co-ordination (OECD, 2005[19]; Windisch, 2015[20];

Desjardins, 2017[21]). Portugal also faces these challenges, outlined below, and they are

addressed throughout the report:

A lack of interest in pursuing adult learning is the main reason adults in

OECD countries do not engage in learning.

In contrast to compulsory or higher education, the returns of adult learning are

not well monitored and are not always clear. Furthermore, the barriers to

participation are difficult to surmount (e.g. participation in adult learning is non-

statutory and competes with other priorities, including work, family, etc.).

Understanding why motivation for learning in adulthood is low, and raising

awareness of the benefits of learning, is thus crucial. Equally, so is enhancing the

rewards of learning by aligning education and skills policy with economic

development and innovation policies, and removing barriers that limit access and

success in adult-learning programmes.

Ensuring access and quality is complicated by the diversity and complexity

of adult-learning systems. In most countries, adult learning involves activities of

different durations and intensity. Work-relevant or work-based learning may or

may not be involved, as may formal education components and testing of the

knowledge and skills acquired. The diversity of adult-learning systems has

benefits: it allows the means and purposes of adult learning to reflect the diverse

needs of adult learners. However, it can also make these systems difficult to

navigate, especially for those with low skills.

Effective governance and financing mechanisms are needed to underpin

adult learning. However, both are often weaker than in other parts of the

education and skills systems. Responsibility for adult learning is typically shared

by several ministries or public agencies and different levels of government.



Adult-learning programmes are often provided by private and not-for-profit

organisations, making monitoring more complex. Finally, by comparison with

formal education or active labour-market policies, adult-learning policies tend to

be piecemeal, and funding is limited.

The collaborative process of the Action Phase: Engaging stakeholders

A highly collaborative process was used to produce this report. The OECD team worked

closely with the Portuguese National Project Team (NPT), which included expert

advisors from the cabinet of seven ministers and the Prime Minister. Ministries

represented included: Education (lead Ministry); Labour, Solidarity and Social Security;

Science, Technology and Higher Education; Economy; Finance; Infrastructure and

Planning; Presidency and Administrative Modernisation.

Input was sought from the NPT and stakeholders through six country visits between

February and November 2017, including two workshops that each brought together about

80 participants from a range of sectors, including employers, unions, education and

training providers, academia, community organisations, think tanks, government (at

national and local level) and users of the adult-learning system (see table below and

Annex D).

Table 1.1. Action Phase: engagement of Portuguese stakeholders

Objectives Participants

Kick-off seminar – Lisbon, 9-10 February 2017

Refine focus for Action Phase among ministers Ministers and State Secretaries

Fact-finding mission – Lisbon, 22-24 March 2017

Map the current adult-learning system in Portugal

National Project Team and key government services

First stakeholder workshop and fact-finding mission – Lisbon, 3-5 May 2017

Understand barriers in the current system from stakeholders’ perspective (including learners)

Diverse stakeholders

Fact-finding mission – 26-30 June 2017, Lisbon, Porto, Beja

Understand challenges in the provision of learning and the demand for skills

Employers, education and training providers, unions,

etc.

Recommendations discussion mission, 9-10 October 2017

Obtain feedback on draft recommendations National Project Team and key government services

Second stakeholder workshop – Coimbra, 10 November 2017

Obtain feedback on the implementation considerations for each recommendation

Diverse stakeholders

Other strands of work contributing to the Action Phase included comparative analysis on

good practices in adult learning, which are included throughout the report. Additional

tools developed to support the ongoing assessment of Portugal’s adult-learning system

include:

a mapping of the current adult-learning system in Portugal (Annex A)

a conceptual framework and potential key performance indicators, to help

Portugal assess the performance of its adult-learning system (Annex B)

a survey of participants in the second stakeholder workshop, on the relative

importance of the recommendations and the key considerations for

implementation (Annex C).

The input of stakeholders was instrumental in developing the report’s recommendations

and identifying the key considerations for implementation.



Highlights of stakeholder input

Overall, stakeholders agreed that no single issue can help improve adult learning in

Portugal, but rather that improvements are required in the area of awareness, access and

quality, governance and financing. Stakeholders attributed challenges in these areas to a

combination of factors. These include: poor economic conditions, which reduce demand

for skills and interest in investing in skills; the lack of a coherent adult-learning policy;

inconsistent financing; and a complex patchwork of adult-learning programmes.

Insufficient guidance and support helping learners to overcome barriers were noted as

challenges particularly relevant for adults with low skills. Table 1.2 provides highlights of

stakeholder perspectives in the four key themes discussed in this report.

As for possible solutions, the stakeholders who responded to the survey on

implementation (see Annex C) rated each of the report’s recommendations as “very

important” or “essential” on a five-point scale. Strong consensus emerged on the

importance of some recommendations, but the relative importance of others was debated.

For example, all or most respondents, across various sectors, agreed that the quality of

adult learning could be improved by performance monitoring and evaluation. They also

noted the importance of better information to raise awareness of the benefits of learning.

Opinions on governance and financing, however, varied widely. Non-governmental

stakeholders, such as private companies and non-profit associations, for example, stressed

the importance of financial incentives for learners and employers, and of both national

and local governance bodies.



Table 1.2. Summary of stakeholder perspectives

General perspectives on adult learning in Portugal

• Further consensus about the notion of “skills” and the value of acquiring skills in adulthood is needed in Portugal. Portuguese citizens continue to value formal education qualifications more than skills or competencies.

• Vocational education and training and learning in adulthood continue to be seen as options that are inferior to higher education, which is only accessible to a minority of individuals.

• The lack of a coherent and long-term adult-learning policy limits improvements in the adult-learning system, despite progress in the past two decades.

• The demand for skills appears to be limited, largely due to continuing high employment in some areas and low productivity and innovation in many firms.

Awareness

• Advanced technical skills and transferable skills (e.g. communication, management and “learning to learn” skills), are important but are insufficiently recognised.

• Adults with low educational attainment tend to be less motivated to participate in learning, as are micro-enterprises. Many young adults are not interested in VET.

• The motivation to provide employer-sponsored training tends to be lower in smaller than in larger firms. Not all firms have activities that require highly skilled workers.

• Many factors influence adults’ motivation to learn. These include how the adult-learning system is organised, whether broader public services (e.g. public transport, social support, etc.) are available to overcome barriers to access, and the economic context.

Access and quality

• The current system could be more accessible and flexible to attract low-skilled adults and help them succeed.

• Dedicated financial support for adults undertaking learning above the secondary level and broader support (e.g. transport, social) could boost participation.

• Employers noted the limited effectiveness of the regulatory regimes for employer-sponsored training. They also indicated a preference for tailor-made solutions.

• The current regulatory framework could be more efficient and effective, for example the process to update the National Catalogue of Qualifications. Data collection exercises required of providers need to be streamlined, and these data need to be better used to assess performance and improve programmes.

Governance

• The lack of a clear “owner” of adult-learning policy weakens coherence in the adult-learning system.

• Government efforts to engage local actors to improve collaboration and co-ordination could be improved, to help narrow the gap between national policy and local needs.

• Local partnerships exist, but incentives for the sustained engagement of key players in these partnerships are limited, particularly for employers.

• Stakeholders noted the importance of having well-identified governance bodies in charge of adult-learning policy to strengthen policy coherence. However, some pointed out that, to avoid duplication, the existing opportunities should be used to the extent possible.

Financing

• Fluctuations in funding have reduced the accessibility of learning opportunities.

• Financial incentives to increase investments from individuals and employers are an area where most new government funding is needed.

• Stakeholders noted that funding decisions on learning are highly centralised. This makes it difficult to use public funding for training solutions tailored to the particular location. Adult-learning providers are limited in their ability to adjust their staff and financial resources to respond rapidly and adequately to local needs.

Note: The summary of input on the four themes is based on the overall input received during the project. The

views reflected in the implementation of recommendations reflect on average the views of the 38 respondents

to the implementation survey (see Annex C for details).

Recommendations

The following recommendations have been developed using input from stakeholders and

in close collaboration with Portugal’s National Project Team. They offer specific advice

and, taken together, provide a map for action.



Overarching recommendation

Develop a coherent adult-learning strategy that encompasses existing and new

measures, and is aligned with other key economic policies.

Building on Portugal’s existing policy efforts, lay out the blueprint for a coherent adult-

learning strategy.

Key elements for consideration in such a strategy include:

identifying the key skills important for Portuguese citizens, from early years to

adulthood, to succeed in the labour market and in life.

aligning Portugal’s vision and goals for adult learning with other key policies,

including basic, secondary and higher education strategies, economic

development policies, such as Indústria 4.0, and other policies promoting

innovation, productivity and job creation.

ensuring the strategy is supported by sustainable financing and governance

arrangements.

A consultative and collaborative process should be undertaken within six months of the

completion of the Action Phase to secure broad support, and should:

include consultation on Portugal’s adult-learning policy with key national

consultative bodies responsible for education, economic and social issues.

engage all political parties to encourage broad-based support.

engage national and local public service administration staff at all levels.

Awareness of value of skills and motivation for adult learning (Chapter 2)

1. Improve the collection, use and dissemination of information on skills

performance and the returns to skills investments, building on existing tools.

This recommendation includes the following specific actions:

Participate in Survey of Adult Skills (PIAAC), to generate information on skill

performance and the returns to skills.

Pursue the implementation and improvement of the current skills needs

assessment and anticipation system (Sistema de Antecipação de Necessidades de

Qualificaçoes, or SANQ).

o Expand the use of SANQ to plan the adult-learning provision locally.

Local networks (see Recommendation 8), should be involved in this

work.

o Improve the SANQ’s governance, human resources capacity and funding

for operations. This could be a priority for action of a skills council (see

Recommendation 7).

o Strengthen the reliability of SANQ assessments and projections through

incorporating international best practices and undertaking

complementary data collection exercises where needed (e.g., on specific

regions/economic sectors, on SMEs and sectors that provide the most and

the least training to better understand motivations and obstacles).



As part of complementary exercises, sectoral exercises would be

important. One potential approach could be to establish sectoral

commissions at the regional or local level, as needed, in specific sectors,

involving relevant players from the education and training sector,

government and industry. Such commissions could lead the annual

diagnosis of training needs and alignment of the regional or local supply.

They could be part of local networks (see Recommendation 8).

Improve systematic collection and dissemination of data on the outcomes of adult

learning, to raise awareness of its benefits:

o Explore opportunities to construct a publicly accessible adult-learning

database, following the approach of Infocursos for tertiary education and

Infoescolas for secondary education.

o Leverage existing data collection exercises that can shed light on the

returns to adult-learning programmes (e.g. leverage data required for EU

funds for policy and programme improvement purposes (see

Recommendation 6, on a performance-monitoring framework and key

performance indicators).

o Expand data linking pilot projects across public institutions for policy

purposes, and make key datasets (e.g. social security/tax information)

available to researchers to enhance analysis of such data.


communication campaign to raise awareness of the value of skills and skills


This recommendation includes the following specific actions, building on existing tools:

Develop a multi-pronged, ongoing communication campaign, with a focus on

proactive guidance tools.

o The purpose would be to emphasise the value of acquiring skills in

adulthood, and the range of available learning opportunities for different

profiles of learners. It would also showcase the real-life impacts of

learning such as successful personal experiences, as well as best practices

in adult learning through national competitions/awards for employers.

This, in particular, could encourage investment in training and highlight

the benefits from the employers’ perspective.

This campaign should build on and further improve existing tools, such

as the Qualifica Portal, and TV campaigns such as Minuto Qualifica, and

interactive guidance tools such as the Qualifica Passport. Improvements

should include: i) the co-ordination of different tools and sustainable

funding to help strengthen the culture of lifelong learning over time in

Portugal; ii) improved clarity and relevance of the information provided

to different learners; and iii) the use of “nudge” strategies, such as the

design of information provided strategically to prospective learners

where they are likely to be receptive to it (e.g. providing adult-learning

information for parents, and possible support to apply for a programme,

at one-on-one parent-teacher meetings).



o Measure the impact of communication tools over time, to ensure that

those that are most effective are identified and maintained over time.

Tailor information and communication approaches to reach key target groups.

o These include the low-educated/low-skilled, unemployed and inactive

adults, youth, especially those at risk and NEETs, employers and

specifically SME and micro-enterprise owners and managers.

o This tailoring of information should be based on understanding the needs

of these groups, which requires adequate training of staff in Qualifica

Centres and education and training providers (see Recommendation 6).



their users.


Use the strategy of the Directorate-General for the Qualification of Public

Servants (INA) to identify key skills needed in the public service, and raise

awareness and motivation about the value of skills at all levels of government.

This should include:

o expanding approaches to identify skills needs at various levels and

identify relevant training opportunities.

o incorporating upskilling in the core business of public administration

staff, e.g. through accountability tools.

o developing incentives for staff to actively pursue training (e.g. job

promotion opportunities, etc.).

Develop training approaches tailored to local public and community services

staff, to raise their awareness of the value of skills and upskilling, and raise their

capacity to provide information and guidance to their clients about learning.

o A large range of local services should be considered, including for

example Qualifica and Public Employment Service (Instituto de

Emprego e Formação Profissional, or IEFP) Centres, youth services, as

well as other key social services (health, housing, etc.)

o Incorporate a focus on raising awareness about the value of skills, and the

provision of information and guidance, in the pre-service training

required for adult-learning staff.

Access, quality and relevance (Chapter 3)



Assess the current provision of adult-learning programmes and identify where

gaps need to be filled to raise the participation and improve the outcomes of key

groups, in particular:



o For low-educated adults, NEETs and the long-term unemployed: Ensure

the availability of flexible opportunities that combine basic skills

upgrading and work-relevant learning, in formats suitable to adults.

o For employers, especially SMEs and micro-enterprises: Monitor existing

programmes to ensure they reach a critical mass of SMEs and provide

relevant training.

o For young and medium-skilled adults: ensure that VET provision at both

secondary and post-secondary levels is of sufficient quantity and quality,

taking into account i) the urgent needs of certain economic sectors for

skilled professionals (e.g. tourism), ii) the large number of young

NEETs, and iii) the growing number of graduates from the vocational

stream of secondary education (cursos profissionais) who may lack

pathways to labour-market learning opportunities at the post-secondary

level.

Improve the quality of existing adult-learning programmes by filling gaps in

provision and by funding models that demonstrate good results:

o Leverage EU funding (e.g. develop Upskilling Pathways models) and

provide targeted government funding to develop or scale up programmes

that have shown positive results. Also pursue private funding through co-

financing arrangement (see Recommendation 9 in Chapter 5).

o Establish clear criteria for allocating funding, so that adult-learning

programmes are designed or redesigned in a way that reflects good

practice. This can be implemented when new measures are developed, or

by including such criteria in calls for providers to design and deliver new

programmes. These criteria may include a combination of the following,

identified as good practice based on international evidence:

1. clear objectives and relevant performance-measurement approaches and

indicators

2. strong justification for creating a new programme rather than using existing

programmes (e.g. demonstrate existing gaps in the system, growing demand from

employers and/or individuals that cannot be met with the current supply, etc.)

3. relevant content: as currently done in Portugal, combine provision of

foundational and transversal skills training with technical/job relevant skills

training. This includes expanding work-based learning opportunities,

collaboration between different training providers (e.g. schools and employers) in

the delivery of training, and involving local stakeholders in the design of adult-

learning programmes, to ensure that they are relevant in the labour market.

4. effective and efficient delivery: Ensure all learning opportunities allow for

flexible and modular approaches to address adults’ time constraints and their

potential need to stop and/or resume training at different stages; encourage co-

location of services for more efficient delivery, etc.

5. transferability: Pathways and recognition mechanisms must allow movement and

progression between new and existing programmes (see Recommendation 5).

6. Provide targeted financial and non-financial support to improve the access and

success of disadvantaged groups. Also, ensure adequacy of broader support at the



local level (e.g. transport, child care) as a key enabling condition for the

participation and success of learners.


Assess the adult-learning delivery network in its entirety, to identify gaps and

duplication, and adapt provision to the population density, client profiles and

economic needs. This should involve an in-depth evaluation of the network’s

strengths and weaknesses, and areas where it can be more efficient and effective,

which should be done in addition to the existing annual exercises conducted to

plan for the provision of learning opportunities.

o Build on approaches used by ANQEP to select Qualifica Centres, to

ensure that the scale of provision reflects local population density,

different client profiles and economic context.

o Differentiate training provision based on the strengths of providers, and

improve complementarities and synergies at the local level (e.g. by

bringing together multi-disciplinary teams).

For example, providers with strong associations with local

companies could assume a greater role in i) learning options that

provide labour-market relevant skills, ii) improving access to

work-based learning, and iii) facilitating the employment of

learners after completion. Providers with a good track record in

basic skills training should play a key role in delivering such

training. Partnerships between these different providers are

critical for ensuring that learners can benefit from the best-

quality learning both in basic skills and in skills that are relevant

in the labour market.

Efforts should meanwhile be made to maintain accessibility, for

example by leveraging online learning options and providing

supports for transportation.

o Consider strengthening the role of polytechnics in providing adults with

high-quality training, including both labour-market relevant and basic

skills training.

o Ensure the offer of VET for both youth and adults is coherent and easy to

understand for users.

Improve the assessment of clients’ needs and matching learners to the right

opportunities, to improve retention and completion:

o Build on the Qualifica Passport and international best practices to

develop advanced ways of determining user needs.

o Ensure adequate training of adult-learning staff (see Recommendation 7).

Develop or strengthen pathways between programmes.

o These include pathways between different programmes, to allow low-

skilled adults to progress between different programmes as they gain

higher levels of skills. For example, this can include pathways allowing

progress from basic skills provision and secondary school level, e.g.

education and training courses for adults (Educação e Formação de



Adultos, or EFA), and certified modular training (Formação Modular

Certificada, or FMC) onward to post-secondary, non-tertiary options, e.g.

technical specialisation post-secondary non-tertiary vocational courses

(Cursos de Especialização Tecnológica, or CET) and then to tertiary

education, e.g. short-cycle tertiary education courses (Cursos Técnicos

Superiores Profissionais, or CTeSP) and bachelor-level education.

6. Strengthen quality assurance, including by developing a performance-monitoring

and evaluation system and a set of key performance indicators.

This recommendation builds on Portugal’s existing work implementing the European

Quality Assurance in Vocational Education and Training (EQAVET) framework and the

new system to monitor the activities of the Qualifica Centres. It includes the following

specific actions:

Establish a performance-monitoring and evaluation framework for the adult-

learning system, to articulate objectives, inputs, processes, outputs and outcomes.

o Select a specific organisation with adequate resources to lead this work,

ensuring that it complements and does not duplicate existing work. A

skills council may, for example, lead this type of work (see

Recommendation 7).

o Based on international best practice, including EQAVET work, develop a

limited set of key performance indicators that can be monitored publicly.

Include: i) core indicators common to all programmes and

relevant to the adult-learning system (see Annex B for concrete

examples), and ii) indicators tailored to specific programmes

with different goals and learner profiles.

As a condition of receipt of public funding, require regular and

comparable third-party evaluations for adult-learning

programmes, to increase understanding of their impact,

challenges and practices that work, allowing progress over time.

Streamline and strengthen the quality-assurance system:

o Simplify the reporting requirements required of service providers by:

co-ordinating data collection across ministries (e.g. single

request)

requiring submission through a single and simple digital system

reducing the data requirements, focusing only on indicators

relevant to the performance-monitoring and evaluation system.

o Shift to a risk-based auditing approach: Dedicate resources for more

frequent on-site audits in institutions that perform less well, based on the

results of the performance-monitoring and evaluation system.

o Reduce the number of institutions in charge of quality assurance for adult

learning, or establish requirements to align practices across institutions.

o Provide appropriate financial and human resources for institutions in

charge of quality assurance.



Ensure that adult-learning professionals are available in sufficient numbers, with

the appropriate skills:

o Identify the current supply of adult-learning staff compared to anticipated

staffing needs once the ramp-up of Qualifica Programme is complete.

o Encourage effective hiring and training practices to ensure that the adult-

learning workforce has the right level and mix of skills for a variety of

clients (including employers) and needs (e.g. teaching, but also

guidance).

o Make sure ANQEP continues to develop summative and formative

evaluations of the Qualifica Centres, and extend this model to other

organisations providing career management and training. This could

involve legislative changes to allow the ANQEP to take on such role, and

require additional resources for such task.

o Engage in peer learning with countries requiring certifications for adult-

learning providers, to assess the benefits and drawbacks of such models.

Governance

7. Set up dedicated governance bodies to oversee adult learning: a permanent inter-

ministerial team and a permanent group within an existing multi-stakeholder

institution.

Make the National Skill Strategy project team, which involves seven ministries

and four national support organisations, a permanent body.

o Select an appropriate ministry/centre-of-government agency for the new

Skills Team to report to.

o Include a mechanism for consulting local-level entities involved in the

planning of adult learning, such as CIMs, on a regular basis.

Consider creating a permanent skills council to steer adult learning taking a

whole-of-government and whole-of-society perspective over the long term.

o Ideally, position this group in an existing national advisory body that has

a secretariat and that involves participants from both government and

stakeholders, to avoid reduplication of governance bodies.

o Consider the Co-ordinating Council of the System for the Anticipation of

Skills Needs (SANQ) created in 2014, due to its core stakeholder

participation within and outside government, but also make it responsible

for monitoring results and reporting to the public.

For these two bodies:

o Ensure an appropriate legislative basis and clear mandate for action, with

public accountability requirements.

o Provide dedicated budget and staff support.



8. Reinforce existing local networks at the municipal level, or develop new ones, to

address current and future needs for skills that align with the local economic


Create or activate an appropriate number of local networks throughout Portugal

for regular collaboration between local actors, including municipalities;

intermunicipal communities; parishes; local enterprises; local trade

unions/employee representatives; chambers of commerce; sectoral councils for

qualifications; social service providers; community organisations; education and

training providers, etc.

The purpose of such networks would be to ensure a forum where key actors can:

o Work with partners involved in implementing Portugal’s system of skills

assessment and anticipation (SANQ). Assess both short- and longer-term

economic and labour-market needs in the local area (e.g. both immediate

shortages reported by employers and the need to grow human capital to

move up global value chains).

o Develop plans to align local supply with identified needs.

o Seek to maximise policy synergies by, for example, ensuring that funding

targeted to regional development, both national and from the EU, take

into account skills needs. Conversely, ensure that skills initiatives and

funding support economic development.

Wherever possible, use an existing local organisation to host and co-ordinate

such local networks, and allocate dedicated funding to support the work of these

organisations to strengthen adult learning (e.g. for a small secretariat staff). This

funding should be linked to the relevant performance indicators.

o The Rede Social is an example of a local network bringing together

several community associations that, together with local education and

local youth councils, could form a basis for establishing such a network.

o Special attention should be paid to securing representation from the

demand side (employers and industry associations).

Develop a governance structure for the network (e.g. select a single co-ordinating

organisation) and targeted incentives, to allow all key stakeholders, and

employers in particular, to participate in these local networks (see

Recommendation 9 on “skills financing pact”).

Pilot the approach in two or three local areas for 12 months, then undertake an

evaluation before expanding the model.

Financing

9. Establish a stable and quality-oriented funding model through a “skills financing

pact”, including targeted financial incentives for learners, employers and providers.

As a first step, develop an inventory of funding sources (national, EU, employer

expenditure, individuals’ expenditure), annual amounts and allocation methods for

distributing this funding to education and training providers or end users.

Analyse the distribution of funding according to regions/local areas, demographic

characteristics of learners/employers covered, and the types of programmes.



Identify initiatives with greater potential for co-financing with employers.

Develop a “skills financing pact” signed by government and social partners that

establishes a multiyear (e.g. five-year) funding commitment that would be subsequently

renegotiated. This pact would lay out:

The respective roles of various actors in financing adult learning, including EU,

national and private sources, and notional amounts to be contributed, either as a

requirement (e.g. from the state budget) or as an “aspirational target”, in the next

five years.

Any co-funding requirement that could condition new employer-focused

subsidies to a specific financial contribution from employers. Such requirements

could vary based on company size and other factors.

The types of priority initiatives to be funded, in line with evidence-based need

and broader policy goals.

The types of entities eligible for funding, including individuals and employers.

High-level criteria and procedures for allocating funding to eligible entities, with

a focus on incentivising quality provision and co-operation (see next section).

Provisions to ensure funding to cover the delivery of programmes, administrative

costs and provide flexibility for managing human and financial resources at the

local level. Some funding may also be set aside for research and development in

adult learning to test innovative practices.

The pact should reflect the key objectives of the adult-learning policy and the

performance-monitoring framework. Robust monitoring of programmes is critical

for assessing the returns on investment made through the pact.

The pact should include incentives for providers to promote quality and co-operation:

Review the “+23 route” and assess the size of the demand of adults for higher

education. Incentivise universities and polytechnics to i) adjust the number of

places for adult learners to meet demand, and ii) provide support services to

increase the access, retention and success of adult learners.

Ensuring funding to providers for expanding the CTeSP can serve a larger and

more diverse population and address current gender and age imbalances. This

funding could also help build bridges with providers that deliver adult learning at

lower skill levels and may serve adults who may choose to pursue higher

education in future.

Use funding levers to promote an adequate supply of adult-learning opportunities,

based on a robust assessment of skills demand now and in the future.

o Levers might range from targeting new public incentives towards

programmes that serve specific populations, to performance contracts, or

the regulation of new publicly funded training programmes (e.g. by

conditioning public funding for new programmes on meeting certain

criteria – see recommendation 4 on high-quality programmes).

o Funding should also be used to support the system as a whole, for

example to promote strategic partnerships that support the alignment of

skills supply and demand, such as local networks.



Assess how providers of non-formal learning, ranging from employers to social

organisations, might be incentivised to provide quality training:

o Better target employer incentives (see Recommendation 10).

o Ensure that funding for social/community organisations supports high-

quality, relevant training, and is coupled with relevant accountability

mechanisms (see Recommendation 6 on key performance indicators).

10. Introduce targeted financial incentives for employers (specifically small and

medium enterprises) and individuals (specifically disadvantaged groups) to

encourage provision of, and participation in, training.

Review the effectiveness of current incentives.

o Assess the impact on the productivity of both individuals and companies

of incentives, and whether training would have been undertaken even if

the subsidy had not been provided.

o Analyse the impact of the tax system, including the structure and

progressivity of the personal income tax and the amount of social

security contributions on the returns to skills (and thus the incentives

whether to upskill), and on the willingness of individuals to supply skills

to the labour market.

Consider larger and more targeted subsidies, using best practice to guide the

amount and mechanisms used. Targeting should focus on:

o employers who provide the least training and individuals who participate

the least.

o encouraging the provision and take-up of skills training with potentially

broader and longer-term effects (e.g. foundational and transversal skills).

o encouraging training in sectors of high demand that are aligned with the

country’s economic development goals, including those where shortages

currently exist or are expected to emerge in future.

When developing new incentives, involve individuals from target groups, to better

understand their motivation and increase effectiveness.

Strengthen complementarities between employment and training incentives for

the unemployed.

o Consider coupling current targeted hiring subsidies provided through the

public employment and vocational training service (IEFP), such as those

targeted to youth, the low-skilled and the long-term unemployed, with

incentives for employers to also train these individuals.

Combine financial incentives with non-financial support (e.g. information,

guidance, staff capacity for advising target client groups).

Consider linking public procurement policies with requirements for successful

bidders, to provide a specified amount of work-based training, such as

apprenticeships, internships and other options, especially in sectors with

shortages/tight labour markets.



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2. RAISING AWARENESS OF THE VALUE OF SKILLS AND ADULT LEARNING IN PORTUGAL │ 45


Chapter 2. Raising awareness of the value of skills and of adult learning in

Portugal

Adults in Portugal, especially those with low education levels, continue to report

low levels of motivation for further learning, despite the progress made in the past

decade.

This chapter includes three parts. The first reviews the potential reasons for the

low motivation among Portuguese adults generally, and low-skilled adults in

particular, to pursue learning in adulthood. The report argues that a better

understanding of these motivational barriers is critical to designing and

implementing more effective adult-learning policies.

The second part focuses on how to raise awareness of the value of skills and of

adult learning as a key approach for overcoming low motivation. Policy examples

are provided to address low awareness of the value of skills and of adult learning:

improving the collection and effective dissemination of information, providing

more tailored guidance services, and strengthening the role and capacity of local

services in raising motivation, particularly among unemployed and inactive

adults, those with low qualifications and low skills, youth at risk and neither

employed nor in education or training (NEETs) and owners and managers of

small and medium enterprises (SMEs).

The third part offers recommendations for raising awareness of the value of skills

and of adult learning.

46 │ 2. RAISING AWARENESS OF THE VALUE OF SKILLS AND ADULT LEARNING IN PORTUGAL


Summary of stakeholders’ views:

The need for advanced technical skills as well as transferable skills, such as

communication and management skills and “learning to learn” competencies, was

noted as important to Portugal’s current and future economic success, but as

insufficiently recognised by society.

Low motivation for learning was identified as particularly problematic for low-

educated individuals and SME owners and managers. Concerns were expressed

about young adults’ lack of interest in vocational education and training.

Motivation to provide employer-sponsored training varies among economic

sectors and based on firm size. The demand for highly skilled workers also seems

to be concentrated in certain economic sectors. In other sectors, the demand for

skills is low.

Motivation to learn is influenced by the way the adult-learning system is

organised, the availability of broader public services (e.g. public transport, social

supports, etc.) and the economic context. High staff turnover in Portugal’s adult-

learning centres (Qualifica Centres), especially among non-teaching staff such as

psychologists, was raised as an example of organisational challenges. In addition,

in areas where unemployment remains high, individuals may lack the incentives

to participate in adult learning, given that they expect low rewards in the labour

market.

Despite improvements in recent years, low motivation is still the main barrier to

raising participation

Participation in adult learning could improve

The participation rate in adult learning is close to the European Union (EU) average. In

2017, 9.8% of adults responded that they had participated in some adult learning in the

previous four weeks in 2017, compared to a EU28 average of 10.9%. However, this is

low compared to top performers, such as the Nordic countries, and as noted earlier, this

could be higher given the large number of low-skilled adults in Portugal.

This rate represents a large improvement from a decade ago. In 2007, only 4.4% of adults

reported having participated in learning in the previous four weeks, whereas the EU

average was 9.2%. Several factors appear to have contributed to the rapid increase in

participation during these years. As will be discussed later, in 2009 Portugal introduced

legislation requiring employers to provide 35 hours of professional training to their

employees annually. In addition, the government’s New Opportunities Initiative

(Iniciativa Novas Oportunidades, or NOI), in operation between 2005 and 2013, helped a

large number of adults participate either in processes that recognised their prior learning

(Reconhecimento, Validação e Certificação de Competências, or RVCC) or in training.

By 2010, over 500 000 adults had participated in some form of adult learning through the

NOI, the majority by completing RVCC.

Participation peaked in 2011 and then decreased as noted in the previous chapter. This

corresponded with a drop in the supply of learning opportunities from 2011 and the end

of the NOI programme in 2013. From 2013 to 2015, participation rates stabilised, at

slightly below 10%. It is too early to analyse the results of the Qualifica Programme,



launched in early 2017, but data collected to date suggest that the programme is a

promising attempt to increase participation, as noted in Chapter 3.

The low-skilled are the least willing to participate in adult learning

In Portugal, as in other European countries, the main reason cited for not participating in

adult learning is, overwhelmingly, a lack of interest. In Portugal, three out of five adults

who did not participate in adult learning indicated in 2016 that the main reason for this

was that they were not interested in pursuing it. For other European countries, this lack of

motivation is even more prevalent. Almost four out of five non-participating adults gave

lack of interest as their main reason for not participating.

Lack of motivation is still a major barrier for participation in Portugal, despite the

significant progress made in recent years. In 2007, more than 90% of non-participating

adults cited a lack of desire to participate as the main reason, and in 2011, this share was

still 86% (compared to 83% for EU28). This fell to 61% in 2016, compared to about 80%

for EU countries, with data available at the end of 2017. This notable increase in

willingness to participate may reflect the lack of other opportunities, given the weak

labour-market opportunities after the economic crisis. It may also indicate a heightened

awareness of the value of learning in Portugal.

However, this increase in willingness did not translate into a similar jump in participation

rates in the 12 months1 preceding the survey (Figure 2.1). In fact, participation in formal

education has decreased in recent years, offsetting an increase in non-formal adult

learning. Further, some stakeholders noted that the recent recovery of the economy – and

especially the large number of jobs created in the tourism sector in the past two years –

may have resulted in more adults giving up learning or not pursuing learning, in favour of

immediate access to employment – even if it was low-skilled or precarious work. These

trends highlight the relevance of other barriers to adult learning, in addition to low

motivation, which will be discussed in Chapter 3.



Figure 2.1. Participation rate and reasons for not participating in adult learning

in the last 12 months

Note: EU averages in Panel B and Panel C are based on available countries in 2016.

Source: Eurostat (2018), Adult Education Survey 2016, trng_aes_100, trng_aes_195, trng_aes_196,

trng_aes_197.


Like participation rates, motivation varies significantly according to age and education

levels. In Portugal, the gaps are particularly large, compared to other European countries,

between those with the low and high skills, and between younger adults (under 44) and

older adults. Changes in the type of learning pursued are also interesting: between 2007

and 2016, participation in informal learning, which represents the main channel for

participation in adult learning, has continued to grow. By contrast, participation in formal

learning declined. Several factors are likely at play behind this trend: while the

availability of formal opportunities may have declined during the cut in the budget for

adult learning after the crisis (see Chapter 5, Table 5.1), there may be other reasons for

the increased interest in non-formal learning. One likely driver is the rise in employer-

sponsored training after the requirement, noted earlier, that all employers provide training

to their employees. Other explanations might include adults’ preference for more flexible

learning options.

0

10

20

30

40

50

60

70

80

90

100

2007 2011 2016

%

A.Reasons for not participating Share of 25-64 year-olds who didn't participate

Did not want

Wanted but encountered non-personal difficulties

Wanted but encountered personal difficulties

40.0

50.0

60.0

70.0

80.0

90.0

100.0

Primary (0-2)

Uppersecondary

(3,4)

Tertiary(5,6)

Primary (0-2)

Uppersecondary

(3,4)

Tertiary(5,6)

25-34 35-44 45-54 55-64 25-34 35-44 45-54 55-64

2011 2016 2011 2016

Education (ISCED-levels) Age groups

%

C. Share of adults who did not want to participate by education level and age, 2011 and 2016

Portugal EU (available countries)

0

5

10

15

20

25

30

35

40

45

50

Formal Non-formal Formal Non-formal Formal Non-formal

2007 2011 2016

%

B.Participation rate (last 12 months), by type of education and training


http://dx.doi.org/10.1787/888933711845



Understanding low motivation is critical for designing effective policy

Expected economic benefits and legal requirements play a key role

Motivation to participate in adult learning is influenced by both intrinsic and extrinsic

factors.

Table 2.1. Motives for participation in adult learning

Intrinsic Motives Extrinsic Motives

Epistemic (learning for its own sake) Economic benefits

Socio-affective (search for interpersonal relationships) Prescribed by a third party

Hedonic (being in educational setting) Derivative (participation to avoid other situations)

Professional-operational (wanting to acquire professional skills)

Personal-operational (wanting to acquire skills for activities outside the workplace)

Vocational (demand for skills or symbolic recognition to obtain, preserve or evolve in a job)

Identity-based (demand for skills or symbolic recognition of one’s identity/improving one’s status)

Source: Rothes, Ana et al., “Motives and beliefs of learners enrolled in adult education”, Procedia – Social

and Behavioral Sciences No. 112 (2014), p. 940.

Studies from France and Portugal suggest that extrinsic motives are particularly strong for

some groups, including men, adults with lower qualifications and unemployed adults

(Rothes, Lemos and Gonçalves, 2014[1]; Duarte, Pires and Nobre, 2017[2]; Carré, 2001[3]).

At the same time, these groups also display low intrinsic motivation. These findings raise

particular challenges for Portugal:

There remain challenges in the labour market that can be a disincentive for

learning. Despite the drop in the unemployment rate in the past two years, the

labour market in Portugal still faces challenges. In 2016, the rate of long-term

unemployment was 55.4%, as opposed to 30.5% on average in the OECD.

Labour under-utilisation, a measure that combines unemployment, inactivity and

involuntary part-time work, is high (22.2%, compared with 14.6% on average in

the OECD in 2015). Average earnings remain low, at USD 8.6 per hour versus

USD 16.6 on average in the OECD in 2015 (OECD, 2018[4]; OECD, 2018[5]).

The impact of poor labour-market prospects on adults’ willingness to participate

in learning is not clear. On the one hand, poor prospects can reduce the

motivation of those hoping to secure employment or increased earnings.

However, Portuguese adults’ greater reported willingness to undertake learning

over the period 2011-2016, and the low increase in participation, suggests that

more complex issues are at play. It is possible that individuals are expressing a

general interest in learning, but only decide to engage if they consider the

investment worth it”, and if they face few barriers.

Sanctions may increase participation without raising motivation. In 2016,

almost 20% of Portuguese adults already participated in learning and did not wish

to continue, a figure slightly below the EU average of 25%. This is an

improvement from 2011, when 31% of individuals reported that they were not

willing to continue. Still, this leaves many participants in adult learning in



Portugal who may have participated for reasons other than their own intrinsic

interest. Two reasons may explain this situation: recent changes to employment

protection legislation and active labour-market policies (ALMPs) have made

receipt of benefits more stringent and conditional on participation in some form

of training or work experience (OECD, 2017[6]). Further, since 2009, employers

have been legally required to provide at least 35 hours of training annually to

their employees. This could explain that in 80% to 90% of cases, it is the

employer and not the employee who initiated training activities (Ministério do

Trabalho, 2017[7]). While employer engagement in providing training is helpful,

there is room to encourage employees’ interest in adult learning.

Extrinsic motivation is less effective than intrinsic motivation. Individuals

motivated by extrinsic factors tend to have low levels of persistence and may

require additional supports to avoid high dropout rates (Rothes, Lemos and

Gonçalves, 2014[1]). By contrast, intrinsic motivation is found to have a positive

impact on persistence, concentration, the use of deep-learning strategies, time

management and higher grades. Strategies to increase awareness should thus

emphasise the value of learning beyond immediate labour-market outcomes, to

reinforce intrinsic motivation to learn and to improve outcomes.

Several studies identify certain characteristics of learning in adulthood that can

increase motivation both to start and to complete adult-learning programmes.

These findings, briefly outlined in Box 2.1, should be considered when

considering the quality of adult-learning programmes, discussed in Chapter 3.

Box 2.1. Adult learners’ engagement with learning and implications for policy responses

The role of self-confidence. Adults tend to display higher levels of engagement and self-

efficacy than younger learners (Beder et al., 2006[8]; Santos et al., 2016[9]). In research

conducted in the United States, workers’ confidence in their ability to increase their

productivity through training was found to increase their willingness to sign training

contracts with their employers that contain pay-back clauses if they quit their job

(Hoffman, 2011[10]).

“Reciprocity” attitude: In research conducted in the Netherlands, workers who have

reciprocal attitudes (i.e. who are willing to return a favour) have a higher training rate

than those with low reciprocal attitudes. In other words, those who favour reciprocity are

willing to participate in training offered by their firm, even if they do not see an

immediate benefit for themselves. The strong, statistically significant relationship found

in the study suggests that important attitudinal elements are also at play in training

decisions (Leuven et al., 2005[11]).

Potential implications for Portugal. In some sectors and firms, leveraging employees’

attitudes and organisational culture may be a cost-effective way to increase adult learning.

For example, Portuguese employers in such firms or sectors could consider testing

arrangements such as contracts with pay-back clauses, or provide information about

learning opportunities that are available within their firm or sector.



Employers’ motivations depend on immediate needs and expected returns

In the course of this project, the views of Portuguese employers were solicited to help

understand their motivation for providing training. In interactions with large employers or

umbrella associations representing SMEs in the Lisbon and Porto areas, as well as from

some employers in Alentejo, several insights were identified:

The size of companies has a key influence on the perceived value of investing in

learning. As will be shown in the next chapter, large employers invest more,

while many representatives of SMEs noted that training was typically provided as

a response to legal requirements, and seldom viewed as a productive investment.

In some cases, adult learning was viewed as a way to deal with specific labour

shortages in given sectors and regional areas at a given time (e.g. seasonal work

in Alentejo).

The incidence of training also varies by economic sector. Some companies in

advanced manufacturing that are well-integrated in global value chains saw the

upgrading of their workforce as the key to expansion and business development.

As shown in the following chapters there is also more training in sectors where

the workforce is on average more educated.

The institutional context also plays a key role in motivating employers to provide

training. Employers encountered during the project indicated that they needed the

freedom to design customised training (formação à medida), often in partnership

with sector-specific training centres. At the same time, several noted that they

had already provided substantial financial contributions to professional training,

as will be discussed in Chapter 5, and needed the government’s financial support

to complement their own investments.

These insights indicate the potential for a trade-off between employers’ immediate needs

and motives for providing training on the one hand, and, on the other, the potential

interest of employees and the government in obtaining or promoting the acquisition of

transferable skills to boost adults’ long-term employability. These different types of

motivation need to be addressed by policy measures, both financial and non-financial.

Awareness-raising measures, for instance, need to stress the value of upskilling to address

both immediate business needs and the productivity of Portugal’s workforce in the longer

term. Designing programmes, as discussed in Chapter 3, must consider the relevance of

training opportunities both for employers and for learners. This might involve combining

work-relevant components that benefit employers and their firm’s productivity, as well as

basic skills training to enhance trainees’ long-term employability. Other mechanisms can

also help balance these goals, as will be discussed below. These include governance

bodies involving employers, such as the 16 Sectoral Qualification Councils, in the design

of adult-learning programmes, as well as targeted financing mechanisms and incentives.

Better understanding employers’ motivation can help increase employer engagement in

adult learning and build successful demand-driven systems. In several countries, policy

makers have shifted their focus from a mainly supply-oriented approach to skills

development to stimulating employer demand for skills. This is done in particular by

encouraging an increase in the skills content of jobs (Buchanan, Anderson and Power,

2017[12]). Demand-driven approaches, however, may not succeed if the employers that the

government targets for building partnerships to promote participation in adult learning are

not motivated to move up the value chain (Payne, 2011[13]). Experience from countries



trying to create “skills ecosystems” suggests that public policies are more likely to have

an impact if the employers targeted for strategic and longer-term partnerships appreciate

the benefit of training for their own growth strategy.

Improving motivation by raising awareness of the value of skills

Countries with well-developed adult-learning systems, such as Nordic countries,

Germany, the Netherlands and several Anglo-Saxon countries, place a strong emphasis on

raising awareness for adult learning through the use of multiple policy levers. To do so,

they use approaches such as providing high-quality information on learning opportunities

and creating strong linkages and pathways between adult-learning activities and the

mainstream education and training system (European Commission, 2012[14]; Desjardins,

2017[15]).

The next section reviews examples of policies and practices for three strategies, reflected

in the chapter’s recommendations: the systematic collection of data on skill levels, the

returns to skills and the outcomes of learning programmes.

Better information is needed about skills and the returns to learning

Mechanisms for measuring skills are needed

The Portuguese government has committed to participating in the next round of the

OECD Survey of Adult Skills (a product of the Programme for the International

Assessment of Adult Competencies [PIAAC]). These data will furnish a wealth of

information on the skills of the Portuguese population in literacy, numeracy and problem

solving in a technologically rich environment. It will be useful for critical analyses, from

assessing the labour-market outcomes of individuals at different skill levels and the skills

of individuals who have different types of qualifications.

Information on the skills performance of adults and the returns to skills would

complement the information Portugal already has in terms of the returns to education. It

will also allow more detailed assessment of the skill levels of different population groups

(e.g. by age, gender, labour-market status, socio-economic background, educational

attainment, etc.). This, in turn, will help target, shape and improve Portugal’s education

and training programmes. For example, it will help assess the specific skills where focus

is most needed (e.g. literacy, numeracy or problem solving), and refine the demographic

groups where the need for skills is most necessary. The opportunity to measure skills can

also be helpful, using such tools as the OECD Education and Skills Online. These tools

can help measure the level of skills of target populations and the impact of educational

and training programmes, helping to direct investments where they add most value. It

could also contribute to greater consensus in society at large on the importance of

updating one’s skills throughout life.

Portugal could reinforce its tools for assessing skills needs

The accelerated pace of economic and social change driven by digitalisation and

globalisation leads to a paradox. On the one hand, countries need better skills anticipation

systems for preparing for the future, as past experience quickly becomes obsolete.

Meanwhile, this rapid change increases the difficulty of predicting which skills will be

necessary for individuals to succeed at work and in life.



For example, in Portugal, perceptions diverge on the extent of skills mismatches. On the

one hand, workers reported a low rate of mismatch in 2010, below the EU27 average

(OECD, 2016[16]). By contrast, 35% of employers in Portugal reported difficulties filling

job vacancies in a 2016-2017 Manpower Group survey. This figure was below the

average of the 43 countries that participated in the survey (40%), but above that of France

(23%), Spain (26%), or Italy (31%) (Manpower, 2017[17]).

OECD estimates also suggest that Portugal is a country with one of the highest shares of

overqualified workers, at 25% (2017, p. 93; 44[18]). Yet, some caveats must be borne in

mind. These calculations mean that 25% of workers had a higher educational attainment

than the modal (most common) level of education in that particular occupation. The low

attainment rate of older Portuguese adults may thus contribute to this high rate of over-

qualification. In addition, Portugal continues to lag behind other European countries in

terms of tertiary attainment, which is important to pursue to support the long-term

capacity of the country to strengthen productivity and innovation. The share of tertiary

graduated among 30-34 year-olds rose by 17 percentage points between 2005 and 2016,

much more than the average 11 percentage-point increase in the European Union.

However, in 2016, the attainment rate for this group was still lower in Portugal than on

average in the EU, at 34.6% versus 39.1% (Eurostat, 2018[19]).

To anticipate skills needs and to better align the supply of skills with labour-market

demand, OECD countries have developed various types of skills assessment and

anticipation exercises. These often face various issues in implementation, such as a lack

of reliable data and the lack of financial and human resources for these exercises (OECD,

2016[16]).

In Portugal, the system for anticipating the need for qualifications (Sistema de

Anticipação de Necessidades de Qualificações, or SANQ), created in 2014, is the main

system for assessing skills needs and planning the delivery of vocational courses (see Box

2.2). At present, this system only involves youth, i.e. the planning of secondary-level

vocational education and training courses. The SANQ is co-ordinated by the National

Agency for Qualifications and Vocational Education and Training (Agência Nacional

para a Qualificação e o Ensino Profissional or ANQEP) and includes a consultative

board that includes the Public Employment Service (Instituto de Emprego e Formação

Profissional or IEFP), representatives of workers and employers, and also involves

technical assistance from the International Labour Organization (ILO).



Box 2.2. The functioning of the SANQ

A diagnostic exercise assesses skills needs for Continental Portugal at the NUTS

(Nomenclature of Territorial Units for Statistics) II regional level, as follows:

o a retrospective assessment of labour-market trends associated with

qualifications in the National Catalogue of Qualifications (Catálogo

Nacional de Qualificações, or CNQ). The indicators used measure the

share and number of jobs requiring each qualification, and their growth.

o a forecast of the demand for each qualification. This involves quantitative

data from questionnaires to employers, forecasts from the European

Centre for the Development of Vocational Training (CEDEFOP) of skills

supply and demand and data from the employment services (IEFP)

regarding employment offers registered in the employment centres. A

complementary exercise uses qualitative information, such as interviews

and focus groups, to ensure a more detailed analysis that takes into

account sectoral and regional dynamics.

A planning exercise establishes priorities and criteria for the provision of

vocational training for youth, namely apprenticeship courses and upper secondary

vocational courses.

Both exercises are conducted at sub-regional level: The National Agency for

Qualifications and Vocational Education and Training (ANQEP) leads the work

at the NUTS II level, and several intermunicipal communities (Comunidades

Intermunicipais or CIMs) at the NUTS III level.

Since 2013, the CIMs have been responsible for ensuring co-ordination among

municipalities, and between municipalities and central government, in matters of

education and professional training. Of the 23 CIMs in Portugal, 12 were

engaged by ANQEP in 2015 to pilot the implementation of the SANQ at the sub-

regional level (NUTS III).

As a new initiative, the SANQ faces several challenges, including an uneven commitment

at the political level, a need for co-ordination between all relevant agencies and a lack of

human resources with the relevant knowledge and experience (OECD, 2016[16]).

The scope of the SANQ could be expanded. It now focuses on youth, specifically on the

supply of vocational courses at secondary level and on apprenticeship courses. It would

be worth extending its mandate to guide the supply of adult-learning opportunities. The

reliability of the data and the methodology could also be increased. Taking a stronger

sectoral approach, through regular involvement in assessment and anticipation exercises

of key actors from a particular economic sector (e.g. tourism), could help identify and

meet sectoral needs at the local level.

One issue that emerged during the project is that the result of the SANQ exercises have

not always been well co-ordinated with the results of other anticipation exercises.

Possible solutions include improving the methods used: enlisting independent bodies,

such as universities, for data collection and treatment, continuing participation in

international dialogues, such as through the CEDEFOP Skills Forecasting Network, of

which ANQEP is a member, encouraging the integration of all the anticipation exercises



currently conducted in Portugal, and offering employer and worker organisations a better-

defined, more active role (OECD, 2016, p. 74[16]) Investment in economic models for

enhancing forecasts has also been attempted in other countries, as the Canadian example

shows (see Box 2.3).

Box 2.3. The Canadian Occupational Projection System

Employment and Social Development Canada (ESDC) uses i) the models of the

Canadian Occupational Projection System (COPS) and ii) Canada’s National

Occupational Classification system to develop projections of future trends in the

numbers of job openings and the numbers of job seekers by occupation at the

national level. The COPS is a set of economic models for developing

macroeconomic and industrial scenarios, and forecasts of national trends in level,

composition and sources of supply and demand for labour, broken down by

occupation and industry.

Scope of projections: The projections identify occupations that may face labour

shortages or labour surpluses in the medium term. This helps the government

design immediate solutions (e.g. identifying migration opportunities or

developing short-term worker training schemes) as well as long-term policy

orientations (e.g. developing apprenticeship programmes in certain fields). The

latest projections span the 2015 to 2024 period. Projections were developed for

283 occupational groupings that cover the entire labour force.

Information for the public: Users can find resources at various levels of

sophistication and detail on ESDC’s website and from the Job Bank, a one-stop

portal for job search and learning and labour-market information. They can search

for summaries of projection results by occupation or industry; detailed projection

results by occupation or industry, including information on the factors that are

expected to influence occupational labour markets, such as demographics, labour

force participation rates by age group and level of education; and synthesis

documents covering the major components of the projections, i.e. the economic

scenario, the industrial breakdown of economic activity, job openings by

occupation, job seekers by occupation and projected labour-market conditions by

occupation.

The Job Bank provides an interactive experience for users, tailoring the

information to users’ interests. Additionally, new features such as the Job Bank’s

Job Match service for employers reinforce the role that this tool can play in

providing detailed and timely labour market-information.

Source: (Government of Canada, 2018[20]; OECD, 2017[21])

Opportunities exist to better track the returns of learning of adults

Stakeholders consulted during the project noted that Portugal collects a large amount of

data on education and the labour market. The Ministry of Education and the Ministry of

Labour, Solidarity and Social Security, and their key agencies, as well as the Agency for

Development and Cohesion (AD&C), which is responsible for reporting on the use of

European structural funds, together collect a wealth of data. This includes information

about the number of participants in various programmes, thanks to a unique number



assigned to an individual that is used throughout their education and training. Some

background information on participants, such as age, gender and previous education, is

also collected, although information on their background, such as employment status,

family income and other socio-economic variables, is limited.

Information is collected on the activity levels of training providers, including the number

of users who access and complete learning programmes. The Ministry of Education’s

SIGO system (Sistema Integrado de Informação e Gestāo da Oferta Educativa, or

Integrated system of information and management for education) gathers much of this

information. It is already being used as i) the main source of data on non-tertiary

education; ii) a source of information to feed the user-focused Qualifica Passport; iii) a

tool for issuing the certificates that learners obtain after completing learning. As of spring

2017, the ANQEP uses the SIGO to provide monthly reports on providers and learners to

the Qualifica Centres. The Qualifica Centres can use these data to monitor and improve

their own performance, while the ANQEP monitors overall activity against planned goals.

However, stakeholders consulted during the project stressed that there is a lack of

consistency in how adult-learning providers enter information into the SIGO system, for

various reasons (e.g. multiple reporting requirements, use of paper over digital tools for

reporting, etc.). Efforts are under way to improve the integration of the different

platforms in collaboration with the IEFP and two large private-sector training providers

(Sonae and Jéronimo Martins).

In higher education, the Infocursos portal offers information on the number of graduates

of each course enrolled in an employment centre. This information is systematically

reported and spans several years. Some higher education institutions also maintain

“observatories” that track the outcomes of their students. In addition, existing technical

capacity and enabling legal frameworks have been used on a small scale to develop pilot

projects across ministries to link data on higher education participation and employment

and earnings.

Finally, the reliance on EU funds discussed in Chapter 5 is increasingly conditional on

fulfilling reporting requirements on outcomes, including on rates of employment or

continuing study six months after an intervention. This creates another incentive for

improving the reporting of outcomes. Importantly, however, although the Portugal 2020

framework includes financial penalties for failing to meet agreed-upon targets,

stakeholders consulted during this project noted that “end providers” (e.g. schools) rarely

felt these consequences directly.

Despite the availability of data and the progress achieved, the outcomes of adult learners

are not systematically monitored and impact evaluations of adult-learning programmes

are limited (OECD, 2015[22]; OECD, 2017[23]). The lack of comprehensive background

information on participants noted above was identified as a key issue, preventing more

targeted analyses about populations of interest, such as the low-skilled. The lack of “pre-

and post” information about learners can be attributed to several factors. One is the

limited sharing of data between ministries, except in the case of the pilot projects

mentioned above. Reasons cited range from Portugal’s privacy legislation, which allows

for linking only if the data are anonymised. This requires the use of costly techniques and

adequate expertise. In addition, the lack of connectivity among the multiple data systems,

and the public services’ limited capacity to analyse and use such data, were noted as

obstacles to a more effective system.



To conclude, it will be important to increase monitoring of key outcome indicators,

including employment and earnings gain in the medium to long term, as well as direct

skills outcomes wherever possible. Expanding the use of counterfactual analyses can help

assess impact. Chapter 3 and Annex 2 provide pointers of potential outcome indicators of

interest. At the international level, research has identified various types of economic and

social benefits of adult learning (Box 2.4). Generating such data systematically in

Portugal would help raise awareness of returns, help identify what works in adult learning

and increase quality, and incentivise private investments.

Box 2.4. Overview of evidence on the returns of adult learning

There is a considerable body of research on the impact of adult learning. Findings depend

on the outcomes considered, programme features, learners’ profiles and other factors.

Private economic and social benefits: Participation in adult learning was found to have

some positive effects on the probability of employment, worker earnings and worker

productivity in many studies, including studies utilising randomised experiment designs

(OECD, 2005[24]; Overman, 2016[25]; Card, Kluve and Weber, 2015[26]; McCall, Smith

and Wunsch, 2016[27]). Research findings on the well-being and social returns for

individuals are more limited, although some report positive effects on outcomes and

behaviour, such as health and propensity to volunteer (European Commission, 2015[28]).

The following provide some examples of the variations on the timing of impact and the

size of impacts of adult learning.

Timing of impact: In a review of 200 econometric studies, Card et al. (2015[29])

find some positive impacts in the short term, i.e. within a year of programme

completion, in 40% of the programme assessments studying this variable. The

impact rises over time: for assessments looking at medium (1 to 2 years after

completion) or long-term (after 3 years) impact, 52% and 61% respectively of the

assessments reviewed were found to have significantly positive results (2015[26]).

They also find that training programmes tend to have effects in the medium to

long term, whereas job assistance and subsidies have effects in the short term.

Size of impact: the size of effects on earnings ranged from no impact to rates of

30% in a Portuguese study (Oosterbeek, 2013[30]; Budría and Pereira, 2007[31]).

The impact on productivity identified in these studies also varies widely, from

3% to about 28% (European Commission, 2015[28]). In Portugal, Almeida and

Carneiro found that a return to training generated, on average, an 8.6% increase

in productivity (2009[32]).

Public economic and social benefits: Several studies identify broader benefits

associated with human capital development that is both broad-based (i.e. does not simply

support the top end of the skills distribution) and lifelong.

Associations were found between high participation and investment in adult learning

(both public and by companies) with: higher GDP growth, higher employment rates and

literacy scores (above Level 3 of the Survey of Adult Skills [PIAAC]), lower income and

skill inequality, and higher rates of innovation (Desjardins, 2017, pp. 214-231[15];

Dohmen, 2013[33]).



Portugal should improve the accessibility and quality of learning information

Information needs to reach all adults, especially the low-skilled

Providing information on available learning opportunities for adults is important to

overcome low motivation for learning, provided it can be used effectively. Government

efforts should focus on a dual objective: to ensure that communication campaigns are

targeted to those who tend not to look for information proactively, and to ensure that any

information provided, either through campaigns, general information or through one-on-

one guidance, is clear and accessible to the intended audience.

Portugal does have some information on learning, although there is room for

improvement. Results from the Adult Education Survey (2016) suggest that access to

learning information has increased since 2007, as shown in the figure below (Panel A).

Access to information, however, depends on individuals’ age and educational attainment

(Panel B). In Portugal, individuals with higher educational attainment reported greater

access than their less educated peers: 53.4% of the tertiary-educated report access to such

information, as opposed to 30.5% of those with upper secondary education (in both cases

substantially above the EU average of, respectively 36.6% and 19.7%). By contrast, only

12.3% of those without upper secondary education reported having access to this

information, slightly below the EU average of 12.9%. This suggests that education and

skills levels are an important determinant of access to information on learning

opportunities, thereby potentially perpetuating the skills divide. Additionally, it raises

questions about the effectiveness of the information for specific groups, discussed below.

Figure 2.2. Access to information, 2016

Note: EU average in Panel B is based on available countries in 2016.

Source: Eurostat (2018), Adult Education Survey 2016, trng_aes_182, trng_aes_183, trng_aes_184,

trng_aes_186.


As for targeting low-skilled adults, large-scale campaigns would appear to be important

tools in Portugal, given the large number of adults who fall into this category. The

government has made significant efforts for more than a decade to raise the interest of

Portuguese citizens in participating in learning, including through public websites

(ANQEP, IEFP) and broad-based awareness-raising campaigns during the New

0

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40

45

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http://dx.doi.org/10.1787/888933711864



Opportunities Initiative. These appear to have played a role in raising participation

(Carneiro, 2011[34]), and possibly in the large increase in interest in learning noted earlier

in the chapter.

More recently, the introduction of the new Qualifica Programme, which aims to reboot

Portugal’s strategy to upgrade the education and skills of adults, has been supported by

several information tools. One includes a large-scale television campaign launched in

July 2017. Called Minuto Qualifica, the campaign includes 100 different video clips one

to two minutes long, describing real-life situations and the impact of adult learning. The

Qualifica Programme also has a web portal (Portal Qualifica), which provides access to a

range of information on adult learning through multiple channels, including social media.

Any new or expanded communication campaign, however, should build on past

experience and avoid pitfalls such as overly general information and messages. In

particular, stakeholders suggested that to be effective, any new campaign would need to

i) raise awareness about the quality and rigour of the learning opportunities and processes

used in adult learning, such as prior learning recognition, validation and certification or

RVCC, and ii) deliver well-targeted messages in innovative ways to reach populations

with low motivation and participation. A complementary approach also suggested during

the project would be to showcase best practices and stories from individuals, and create

national awards to recognise investments in training (for instance by employers). The

results of such campaigns should be carefully monitored, to maximise their impact and

cost-effectiveness.

The new Qualifica Passport is an important tool to provide information on learning

opportunities, and could play a key role as a one-stop shop for information on adult

learning. Created in 2017, this new user-oriented online tool and platform provides

information on individuals’ own educational and training record. It also directs users to

potentially relevant learning opportunities based on the qualifications they have already

acquired. Stakeholders consulted during the project, however, noted the complexity of the

tool in its current design, whose clarity and usability is now being revised, with the

addition of a new mobile phone application. These efforts will be important if it is to be

used by all adult learners, especially those with low skills.

‘Nudging’ can help improve the clarity and impact of information

Portugal could explore approaches for maximising the impact of information-based tools,

by enhancing their design and use. Several OECD countries are developing innovative

measures to increase the motivation of individuals to invest in education and training

while coping with constrained public resources. Such efforts build on the growing body

of research in behavioural economics, which takes as its starting point the observation

that individuals do not tend to act rationally, especially when making decisions of long-

term impact, and that the “nudge” can be helpful in applying pressure to direct citizens

towards a given objective (Kahneman, 2011[35]; Madrian, 2014[36]).

Examples of these practices include, for instance, the use of text messaging to influence

students’ learning behaviour. Groot, Sanders and Rogers (2017[37]) assess the role of

supportive text messages sent by family or friends on student persistence in further

education colleges in the United Kingdom. Results show a statistically significant impact,

with improved class attendance for students who received weekly text messages about

course content and/or providing encouragements, compared to a control group. Using a

similar framework, Bettinger et al. (2012[38]) show how simplifying information,



providing tailored assistance and using existing practices and infrastructure can motivate

engagement in learning for students from low-income families, as shown in Box 2.5.

Box 2.5. United States: The Free Application for Federal Student Aid (FAFSA) Experiment

Overview: This research explored whether simplifying the application process for

financial aid might increase the applications of students from low-income families to

i) obtain aid and ii) participate in higher education.

Approach: This research used a randomised field experiment model. The families were

chosen based on the following criteria: having an annual income below USD 45 000, one

family member aged between 15 and 30, and the target participant having no prior higher

education qualification. The families chosen had also been receiving help in preparing

their tax forms from a tax office.

One group received full treatment: i) immediate assistance from the tax office

professional to fill out the financial aid form, given that much of the requested

information on the higher education financial aid form is available on tax forms,

and ii) information on the estimated financial aid individuals could receive

compared to the tuition fees of colleges in their local area.

One group received partial treatment: customised information on the likelihood

of their financial aid eligibility compared to college tuition, but no assistance.

Control group: no assistance or information.

Results: the full treatment had a significant impact on rates of application for financial

aid, and on individuals’ enrolment and persistence. The group receiving information but

no assistance did not have improved outcomes. Student enrolment rose from 34% to 42%

in the year after the experiment, for those whose parents received the help. It increased by

16% for adults out of high school with no prior college experience.

Source: Bettinger et al. (2012).

These experiments are interesting in the Portuguese adult-learning context for a number

of reasons. First, stakeholders repeatedly commented on the need to simplify information,

such as the guidelines and standards for the assessment and recognition of prior learning

(the RVCC process), which targets low-skilled adults. Streamlining such standards, which

are already focused on describing the key skills required at each qualification level, is not

an easy task. The clarity of such instruments is critical if they are to be effective. The

ANQEP’s current work to revise the guidelines for RVCC and education and training

courses for adults (Educação e Formação de Adultos, or EFA), which target basic

education levels, provides a good opportunity to bring greater clarity to these standards.

Second, as shown in Panel B of Figure 2.2, the social network (family, neighbours and

friends) is the second most important source of information and support for pursuing

adult learning in Portugal, well after the Internet but slightly ahead of employers or

educational institutions. This order is reversed in the EU on average, with the Internet,

employers and educational institutions taking precedence. This suggests that outreach

methods that rely on social and family networks at the local level could help in Portugal.

Finally, stakeholders consulted during this project stressed that social perceptions play an

important role in motivating low-skilled adults, including different expectations of



achievement based on socio-economic background. This suggests that targeted outreach

efforts need to be combined with a broader societal consensus on the value of adult skills

and lifelong learning, as noted in Chapter 1. Government efforts initiated in 2017, such as

Minuto Qualifica or the Qualifica Portal, are promising, but they need to be sustained to

show a continuous commitment to lifelong learning.

Making it relevant to the low-skilled: lifelong guidance should be a focus

Career guidance is an integral part of the adult-learning system in Portugal. Various

parties, including the new Qualifica Centres and the Public Employment and Vocational

Training Services (IEFP), provide it as part of their regular services. As shown in

Chapter 3, guidance provided through the Qualifica Centres rose in 2017, even though

many prospective learners are not aware of such services. During the first stakeholder

workshop held as part of the project, a lack of information and guidance was singled out

as one of the most important barriers to interest and participation in adult learning, even

more than the perceived lack of accessibility and flexibility of the system, and concerns

about low labour-market rewards.

This is confirmed by data from the European Commission (2014), which found that in

Portugal, 59% of respondents reported not having used a guidance service because they

had no access to one. This was well above the EU average of 45%. Only 13% responded

that they had used such a service before, as opposed to 24% on average in the EU. By

contrast, over a third of respondents reported using guidance services in countries such

Austria, Denmark (the highest, with 55%), Germany, Ireland and Sweden (2014,

p. 86[39]). This suggests that these countries have been more effective than Portugal at

making guidance an integral component of the adult-learning system.

Finally, proactive outreach to learners in Portugal unlikely to access the adult system on

their own initiative seems clearly to be required, but this may not be consistently

implemented. From a policy perspective, outreach to vulnerable adults was described as a

national priority by the staff of the Qualifica and IEFP Centres consulted during this the

project. Similarly, the Qualifica Centres are required as part of their mandate to raise

awareness in their local communities and to use local networks and organisations to guide

prospective learners towards appropriate learning options. Stakeholders on the ground

noted, however, that the level of activity in this area depended to a large extent on the

individual leaders and staff of the Qualifica Centres.

Information and guidance practices in OECD countries are extremely diverse. They range

from the development of electronic databases centralising information about available

learning opportunities to the provision of free career guidance services through a network

of providers, typically through public employment services or local community or

education institutions. As in Portugal, multimedia advertisement campaigns and “Adult-

Learning Weeks” in countries including Denmark, Finland or Slovenia are widespread

(European Commission, 2012[14]; Eurydice/European Commission, 2015[40]).

Evidence of the effectiveness of outreach measures is limited and mostly restricted to

qualitative case studies (European Commission, 2015[28]). However, the literature

identifies features found to have been most successful in engaging hard-to-reach

participants (Powell, Smith and Reakes, 2004[41]; Windisch, 2015, p. 47[42]). These

include first-media campaigns, including television, a central component of Ireland’s

Adult Educational Guidance Initiative (Box 2.6) presented in Box 2.6. This initiative

improved the national approach to guidance for adult learners, which had previously been

fragmented, overlapping and not accessible to all adults (Phillips et al., 2010[43]). The



other approaches are word-of-mouth referrals from instructors and former participants

and community outreach programmes, discussed in Chapter 4 in the context of local

partnerships for adult learning. Such partnerships also typically involve unions and

employers. In conversations with stakeholders, all three features have been explicitly

noted as relevant in the Portugal context.

Box 2.6. Ireland’s Adult Educational Guidance Initiative

Governance: Ireland’s National Centre for Guidance in Education (NCGE) is an

agency of the Department of Education and Science that provides centralised co-

ordination and quality monitoring of guidance services. An Adult Educational

Guidance Initiative Advisory Group, representing the agencies providing

guidance and the associations of professionals in adult counselling, advises the

Department of Education and Science on guidance policy.

Funding: Funds come from Ireland’s National Development Plan since 2000.

Target groups and coverage: The initiative had a deliberate focus of supporting

learners in adult literacy, the Vocational Training Opportunities Scheme (VTOS)

and the Back to Education Initiative. In 2006, the initiative provided services to

close to 63 000 clients, with about 38 000 enrolled in adult literacy programmes,

close to 20 765 in the Back to Education Initiative and 3 550 in the VTOS

scheme.

Actual groups accessing guidance services: Clients who participated in

vocational education for adults (VTOS) were most likely to access the service

(45%), whereas students in programmes for improving their literacy were less

likely to access these services (0.5% to 22% accessing guidance services across

the territory). Access rates were also relatively low for the Back to Education

Initiative clients. These findings suggest that some of the clients who were hardest

to reach for guidance were also those with the lowest skill levels.

Quantity and quality of guidance staffing is the key for achieving positive

outcomes: The evaluation team found an average ratio of guidance counsellors

per client of 1:1 012, which they considered appropriate. They also noted

discrepancies in ratios across the country. They stressed that entities with the best

results had skilled and committed staff, with a clear focus on their target groups

and effective referrals to internal and external learning services.

Client outcomes: One hundred participants across eight guidance sites were

interviewed. Results indicated the positive impact of guidance for a large majority

of participants, ranging from greater motivation to ability to persist with

education, progress, increased confidence and knowledge of available options.

Over 20% of respondents identified guidance as instrumental in their remaining

education or training. Literacy clients, who reported the lowest expectations in the

adult-learning system, were among those most likely to report that guidance

services had had a strong positive impact.

Source: Philips et. Al. (2010)



Upskilling public and community services at the local level is important to better

reach the low-skilled

Improving lifelong guidance requires the capacity to conduct outreach activities at the

local level. Portugal could focus attention on raising awareness of the value of skills

among providers who deliver services ranging from education, training and employment

support, to housing or health assistance. These are both public servants at the national and

local level, and local community service providers.

Stakeholders consulted during the project noted the importance of the central

administration as a target group for awareness-raising measures, first because it is a large

employer, and next because improving the skills of public servants is likely to generate

broad returns in terms of general policy capacity. They also noted Portugal’s need for a

culture shift to recognise the value of adult learning and professional development. They

suggested that such an effort be launched at the central level, with high-level managers in

central ministries, to be subsequently expanded to all staff and to the local level.

For public servants at the local level and for community service providers, stronger

awareness of the value of skills and learning in adulthood could be beneficial in two

ways. First, it might encourage them to upgrade their skills, thus raising the quality of

services delivered. Second, staff who are aware of the learning opportunities in their local

area can help raise participation among their users, particularly among the low-skilled.

Stakeholders emphasised that “mediators”, who provide advice on a personal and

individualised basis, are essential in Portugal for reaching out to vulnerable groups and

convincing them of the value of adult learning.

Making better use of the existing interactions between vulnerable groups and local public

and community service providers could be an important means of leveraging and

strengthening tailored outreach services. However, this requires that staff at the local

level be aware of the value of skills and be equipped with the skills to play an effective

role in offering information and guidance.

Developing a culture of lifelong learning in the public service is essential

Portugal is actively working on improving the awareness among staff in the national

public service of the value of skills and professional development. Barriers to adult

learning in the public administration are comparable to those in other sectors. For

example, the adequacy of training to meet the needs of workers and of public sector

employers, and the effectiveness and impact of training, are not systematically assessed.

Guidelines for developing training strategies in the several bodies are also lacking, often

leaving approaches to individual managers (INA, 2016[44]).

The Directorate-General for the Qualification of Public Servants (Direção-Geral da

Qualificação dos Trabalhadores em Funções – INA), is developing a new strategy to

identify the skills needed in the public service and to progressively incorporate skills

development in the core activities of public servants (Box 2.7).

The government has also engaged in administration modernisation, simplification and

digitalisation through a dedicated ministerial portfolio. This promotes the vision of a

public service engaged in lifelong learning. However, translating these broad goals and

strategies into practice may require incentivising staff in the public administration to

participate in adult learning, and/or including such activities as part of their core

professional duties.



Box 2.7. Promoting a culture of lifelong learning in Portugal’s public administration

Legislative framework: As of December 2016, new legislation requires the public

administration to make available training opportunities to all workers.

Scope: The Directorate-General for the Qualification of Public Servants has under its

purview approximately 600 000 workers in a range of organisations, including public

servants at the national and local level, public institutes and independent administrative

entities. It also includes teachers of state schools, public workers in IEFP centres and

institutions of higher education.

Roles: INA has three main roles: i) it co-ordinates all professional training in the public

service and sets quality standards, ii) it designs and provides training to public servants,

both initial and continuous, and iii) it supports human resource planning by identifying

skills needs, described below.

Assessing the need for skills in the public service: This includes helping identify the

key skills required in the public service by developing a Model of Skills Management in

the Public Administration (Modelo de Gestão por Competências na Administração

Pública).

This model identifies four levels of technical and behavioural skills: i) transversal skills

required for all public servants; ii) functional skills, such as human resources

management, relevant only to certain groups of professionals in the public service;

iii) transversal skills specific to a particular public organisation, and iv) specific skills for

a particular workplace.

INA identifies the key skills for the first two levels, using a four-stage methodology. This

includes interviews with experts and establishing an expert panel that represents the

diversity in public administration and focus groups for refining the list of required skills.

Similar stages and methodologies are involved for the other levels, but these are

implemented by the specific public body, with optional consulting provided by INA

(2016[46]).

INA has created a method for assessing the impact of training in public administration, as

well as guidelines to help public organisations implement and prioritise training

programmes that need an impact assessment (2016[47]).

Potential challenges:

Mechanisms to ensure use of model are lacking: INA offers its services to help

implement the strategy, but both the implementation of the strategy and the use of

INA guidance are voluntary.

Funds supporting the effort: The budget allocated to INA amount transferred fell

by 13.5% in 2017. While some of this has been made up by other sources of

funding, the overall budget for 2017 is still about 5% lower than in 2016

(2016[48]).



Upskilling local staff is likely to enhance the impact of national efforts

Research on guidance, particularly for low-skilled adults, offers helpful insights on how

to strengthen the guidance capacity of local public servants and community services

(Hooley, 2004, p. 44[45]; Hawthorn et al., 2009[46]). Three strategies have been identified

in particular. First, local-level staff should have the right set of skills, through hiring

policies or training. This includes the skills for understanding, evaluating and satisfying

their clients’ needs. A second category of factors relates to the staff’s ability to develop

strong relationships with local employers and local organisations, which will be discussed

in Chapter 4. A third element relates to the way local services are managed, with an

emphasis on quality assurance and impact measurement, discussed in Chapter 3.

Staff in local public services and community organisations need to be equipped to provide

information and guidance on the value of skills and adult learning. This is not only

relevant for education and training providers such as schools, but for a variety of

organisations. Stakeholders interviewed during the project emphasised that organisations

such as local social service providers (e.g. housing or health), youth associations and

poverty alleviation groups may often be the first line of approach for many low-skilled

and hard-to-reach clients, rather than schools, Qualifica Centres or IEFP centres.

As discussed in the next chapter, Portugal is among a minority of countries that requires

initial, pre-service qualifications for teaching staff in adult-learning services (UNESCO,

2016[47]). However, such requirements only appear to apply to teaching staff, whereas the

research referenced above highlights a range of relevant, non-teaching related skills and

competencies to provide effective guidance. This is of particular concern given the

comments by stakeholders during the project indicating that non-teaching staff at

Qualifica Centres tend to have precarious job contracts, which would make this group

even less likely to benefit from ongoing training opportunities. Incorporating training on

the provision of information and guidance, especially to low-skilled adults, in any pre-

service and ongoing training for both teaching and non-teaching staff involved in adult

learning could be a relevant step for enhancing staff capacity in local public services and

community associations.

Examples of practices range widely. They include providing practical guides to adult-

learning staff on how to identify adults with barriers (Germany); leveraging parent-

teacher meetings and asking parents to complete short writing tasks to detect their basic

skills challenges (UK) (Windisch, 2015, p. 46; 50[42]); the systematic promotion or

requirement of pre-service qualifications; and broader quality-assurance mechanisms.

Recommendations

1. Improve the collection, use and dissemination of information on skills performance

and the returns to skills investments, building on existing tools.


● Participate in the Survey of Adult Skills (PIAAC) to generate information on skill

performance and the returns to skills.

● Pursue the implementation and improvement of the current skills needs

assessment and anticipation system (Sistema de Antecipação de Necessidades de

Qualificaçoes, or SANQ).



o Expand the use of SANQ to plan the adult-learning provision locally.

Local networks (see Recommendation 8), should be involved in this

work.

o Improve the SANQ’s governance, human resources capacity and funding

for operations. This could be a priority for action of a skills council (see

Recommendation 7).

o Strengthen the reliability of SANQ assessments and projections through

incorporating international best practices and undertaking

complementary data collection exercises where needed (e.g., on specific

regions/economic sectors, on SMEs and sectors that provide the most and

the least training to better understand motivations and obstacles).

As part of complementary exercises, sectoral exercises would be

important. One potential approach could be to establish sectoral

commissions at the regional or local level, as needed, in specific sectors,

involving relevant players from the education and training sector,

government and industry.

Such commissions could lead the annual diagnosis of training needs and

alignment of the regional or local supply. They could be part of local

networks discussed in Recommendation 8.

● Improve systematic collection and dissemination of data on the outcomes of adult

learning, to raise awareness of its benefits:

o Explore opportunities to constitute a public-facing adult-learning

database, following the approach of Infocursos for tertiary education and

Infoescolas for secondary education.

o Leverage existing data collection exercises that can shed light on the

returns to adult-learning programmes (e.g. leverage data required for EU

funds for policy and programme improvement purposes (see

Recommendation 6 on a performance-monitoring framework and key

performance indicators).

o Expand data linking pilot projects across public institutions for policy

purposes, and make key datasets (e.g. social security/tax information)

available to researchers to enhance the analysis of such data.


communication campaigns to raise awareness of the value of skills and skills


This recommendation includes the following actions, which build on existing tools.

● Develop a multi-pronged, ongoing communication campaign, with a focus on proactive

guidance tools.

o The purpose would be to emphasise the value of acquiring skills in adulthood,

and the range of available learning opportunities for different profiles of learners.

It would also showcase the real-life impacts of learning such as successful

personal experiences, as well as best practices in adult learning through national

competitions/awards for employers. This, in particular, could encourage



investment in training and highlight the benefits from the employers’

perspective.

This campaign should build on and further improve existing tools, such as the

Qualifica Portal, and TV campaigns such as Minuto Qualifica, and interactive

guidance tools such as the Qualifica Passport. Improvements should include:

i) the co-ordination of different tools and sustainable funding to help strengthen

the culture of lifelong learning over time in Portugal; ii) improved clarity and

relevance of the information provided to different learners; and iii) the use of

“nudge” strategies, such as the design of information provided strategically to

prospective learners where they are likely to be receptive to it (e.g. providing

adult-learning information for parents, and possible support to apply for a

programme, at one-on-one parent-teacher meetings).

o Measure the impact of communication tools over time, to ensure that those that

are most effective are identified and maintained over time.

● Tailor information and communication approaches to reach key target groups.

o These include the low-educated/low-skilled, unemployed and inactive adults,

youth, especially those at risk and neither employed nor in education or training

(NEETs), employers and specifically SME and micro-enterprise owners and

managers.

o This tailoring of information should be based on understanding the needs of

these groups, which requires adequate training of staff in Qualifica Centres and

education and training providers (see Recommendation 6).



their users.


● Use the strategy of the Directorate-General for the Qualification of Public Servants

(INA) to identify key skills needed in the public service, and raise awareness and

motivation about the value of skills at all levels of government. This should include:

o expanding approaches to identify skills needs at various levels and identify

relevant training opportunities.

o incorporating upskilling in the core business of public administration staff,

including through accountability mechanisms.

o developing incentives for staff to actively pursue training (e.g. job promotion

opportunities, etc.).

● Develop training approaches tailored to local public and community services staff, to

raise their awareness of the value of skills and upskilling, and raise their capacity to

provide information and guidance to their clients about learning.

o A large range of local services should be considered, including for example

Qualifica and Public Employment Service (Instituto de Emprego e Formação

Profissional, or IEFP) Centres, youth services, as well as other key social

services (health, housing, etc.)

o Incorporate a focus on raising awareness about the value of skills, and the

provision of information and guidance, in the pre-service training required for

adult-learning staff.



Notes

1 Eurostat’s Adult Education Survey uses a 12-month reference period to measure the rates of

participation in adult learning. This explains the high rates by comparison with other measures that

are commonly used, such as those reported through the labour force survey, which use a four-

month period and is cited at the beginning of this section. Notably, the Europe 2020 goal for EU

members to reach 15% of adult learning participation uses the labour force survey as a data source.



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3. IMPROVING ACCESS, QUALITY AND RELEVANCE OF ADULT LEARNING OPPORTUNITIES │ 73


Chapter 3. Improving access, quality and relevance of adult-learning

opportunities in Portugal

The supply of adult-learning programmes has expanded and diversified in

Portugal over the past two decades. Yet the provision of opportunities that are

relevant and flexible enough to respond to the needs of adults with low skills

appears insufficient. The provider network is complex, which may cause

confusion for learners. This complicates efforts to improve quality assurance,

which also faces capacity constraints.

This chapter includes three parts. The first gives a brief overview of successive

policies in adult learning in Portugal in the past two decades, which resulted in

the creation of a range of adult learning programmes.

The second section focuses on key issues in the current system and provides

policy examples to improve access to adult learning, as well as its quality and

relevance. Specifically, three approaches are discussed. The first consists of

expanding supply where gaps exist, in particular through programmes for the

low-skilled that combine essential skills and work-relevant learning. The

second is to improve the coherence and transparency of the delivery network

to increase trust in the system. Lastly, expanding recent efforts to develop a

robust outcomes monitoring and evaluation system could help improve the

effectiveness and efficiency of adult learning.

The third section presents recommendations for improving access to adult-

learning opportunities, as well as their quality and relevance.

74 │ 3. IMPROVING ACCESS, QUALITY AND RELEVANCE OF ADULT LEARNING OPPORTUNITIES



The current adult-learning system offers many modular learning opportunities

organised by the National System of Qualifications (SNQ). Stakeholders

described the SNQ as supporting the transparency, stability and navigability of

the education and training supply.

Several stakeholders, however, noted certain obstacles facing low-skilled adults,

including the lack of accessibility in some areas, delivery methods that are not

always flexible enough to address the constraints of work and family, and

difficulty in navigating the adult-learning system. Others noted the need for

dedicated financial support for adults undertaking learning above the secondary

level and a general need for broader supports (e.g. transport, social).

Employers noted the limited effectiveness of the regulatory regimes for

employer-sponsored training. They indicated a preference for tailor-made

solutions which do not always fit with those offered by the National Catalogue of

Qualifications, and they noted the need for government support to develop such

solutions.

Concerns were expressed regarding the limited efficacy of the current regulatory

framework to ensure high-quality and relevant provision of adult learning. The

time needed to update the National Catalogue of Qualifications was highlighted

as a challenge. Stakeholders also noted the need to streamline the data collection

exercises required of providers, and to use such data more effectively for

assessing performance and improving programmes.

Portugal’s adult-learning system is diversified, but participation remains low

The system’s foundation, the SNQ, is slow to adapt

The Portuguese adult-learning system has expanded considerably since the 2000s. The

agreement reached in 2007 between government and social partners to reform

professional training was a key milestone, leading to the creation of a National System of

Qualifications (Sistema Nacional de Qualificações, or SNQ) by Decree-Law

No. 396/2007, of 31 December. Revised in 2017 to include new features after the launch

of the Qualifica Programme, the SNQ is the foundation of the adult-learning system in

Portugal. It ensures that all qualifications are based on the standards set in the National

Catalogue of Qualifications and recognised by all other providers in the system, which

makes it easier for workers to pursue learning over time, and for employers to recognise

the credentials they acquire. It is also a vehicle to improve the flexibility of the supply,

for example by increasing the offer of modular training. This system also sets minimum

standards, by specifying the training hours required in specific areas and credits attached

to these training hours to achieve the qualifications included in the Catalogue.

The SNQ involves several instruments that clarify the content and level of various

learning opportunities, according to a standardised structure based on the Portuguese

National Qualifications Framework (Quadro Nacional de Qualificações, or NQF). These

tools aim to clarify the structure of available opportunities and to institutionalise quality-

assurance and monitoring mechanisms (see Box 3.1).



Box 3.1. The SNQ in practice – overview of key instruments

The National Qualification Framework (NQF) defines a hierarchical structure

of qualification levels aligned with the European Qualifications Framework

(EQF).

The National Qualifications Catalogue (Cátalogo Nacional de Qualificações,

or CNQ) is the catalogue of non-tertiary qualifications (EQF levels 2, 4 and 5)

under the purview of the National Agency for Qualifications (Agência Nacional

para a Qualificação e o Ensino Profissional – ANQEP) and vocational and

educational training (VET). For each qualification, the CNQ identifies relevant

skills, broken down as “skill units” (unidades de competência) as well as relevant

training units of short duration (unidades de formação de curta duração –

UFCD). The UFCD are independent units that can be used in various ways to

obtain different qualifications.

The National Credit System for VET uses the modular structure of the CNQ to

allow for flexible training paths. Every skill unit or UFCD earns a specified

number of credits, allowing users to capitalise on prior skills acquisition as they

pursue new qualifications.

The Integrated System of Information and for the Management of the

Education and Training Supply (Sistema Integrado de Informação e Gestāo da

Oferta Educativa e Formativa, or SIGO) is a platform for registering training

activities of individual learners with providers in the SNQ, whether their

qualifications are part of the CNQ or not. When a training activity is completed, a

certificate is issued by SIGO that is automatically registered in the user’s

Qualifica Passport.

The Qualifica Passport is a navigation tool that provides information to learners

about their learning paths, helping them access further learning opportunities,

thus putting in practice the flexibility of the credit system.

A major challenge for the SNQ and the CNQ in particular is to adapt to new needs while

ensuring standards. The CNQ’s updating process is overseen by 16 Sectoral Councils for

Qualifications (Conselhos Setoriais para a Qualificação, or CSQ) constituted by up to ten

specialists chosen by relevant ministries, worker and employer associations, and training

providers. Within these Councils, 134 meetings were held during 2016 and 2017, 17 new

qualifications were created, 122 were updated and 5 were removed. In addition, 25 new

standards for prior learning recognition were developed and another 17 were updated.

Despite this level of activity, stakeholders expressed concern that the updating of the

Catalogue is not nimble enough to meet labour-market needs. They noted, in particular,

the lack of human resources within the ANQEP to support these processes.

Several stakeholders, within and outside government, were sceptical whether all

qualifications should eventually be governed by the CNQ. This highlights the vital trade-

offs between transparency, stability, objectivity on the one hand, and responsiveness to

changing labour-market needs on the other. Possible solutions for addressing the

transparency of learning programmes and responsiveness to labour-market demands are

addressed in this and the following chapter.



The availability of programmes for low-skilled adults may not be sufficient

Participation in programmes at basic skill levels has fallen

Low-skilled adults have a choice of various education and training options at upper

secondary level or below if they wish acquire basic skills and qualifications. As outlined

in the map of the system (Annex A), these include:

Short-term basic skills training programmes (Formação em Competências

Básicas).

Upper secondary evening classes (ensino recorrente).

Education and training courses for adults (Educação e Formação de Adultos, or

EFA) which offer dual certification (academic and vocational) at EQF Levels 1, 2

and 4, in place since the early 2000s.

Certified modular training (Formações Modulares Certificadas, or FMC), created

in 2008, which are based on shorter, transferable and “stackable” units allowing

learners to acquire a recognised certification.

The national system of prior learning assessment and recognition (Sistema

Nacional de Reconhecimento, Validação e Certificação de Competências, or

RVCC) allows adults’ skills to be recognised, so they can obtain qualifications at

the primary and secondary education level.

After increasing from over 130 000 learners in 2001 to more than 200 000 a decade later,

enrolments in adult-learning programmes at the upper secondary level or below have

since declined (see Figure 3.1). They fell to below 40 000 enrolments in 2014, in large part

because of budgetary constraints and programme cuts (OECD, 2015[1]). While enrolments

at this level have rebounded somewhat, reaching 62 000 adults in 2017, this is still a

relatively small number, given that almost 1.8 million adults between 25 and 64 have not

completed upper secondary education in Portugal (INE, 2017[2]).

More adults are enrolled in programmes at the upper secondary level (EQF 3 or 4) than in

programmes at basic levels of education (EQF 2 and below). Further, while about

100 000 people were enrolled in programmes at EQF Level 2 and below in 2010-11, there

were fewer than 30 000 in 2015-16, largely due to the drastic reduction in prior learning

assessment and recognition processes (RVCC).

This fall in RVCC may have reduced the participation of those with lower educational

levels, especially among adults over the age of 30, the majority of Portugal’s population

with low educational attainment (INE, 2017[2]).

Finally, there are noteworthy regional differences in enrolments up to upper secondary

level. The regions with the lowest educational attainment rate, such as the North and

Centre of the country, occupy a relatively small share of national enrolments in the initial

cycles of primary education. Possible causes for these imbalances are unclear, and worth

exploring further to understand whether they are related to low demand or other factors.



Figure 3.1. Total enrolments in non-tertiary programmes targeted to adults

By level of adult-learning programmes

Source: DGEEC, 2012, 2017.


Many stakeholders attributed falling participation to the rolling back of the New

Opportunities Initiative, including the reduction in the number of adult-learning centres

across the country. More recently, the strengthening of the economy and drop in

unemployment has been identified by some stakeholders as a possible reason why

individuals might favour work over upskilling opportunities.

Results of the 2016 Adult Education Survey (AES) confirm the importance for

Portuguese adults of the accessibility and flexibility of adult learning.

Figure 3.2. Obstacles to participation in adult learning as a percentage of total, 2016

Note: EU average based on available countries in 2016.

Source: Eurostat (2018), Adult Education Survey 2016, trng_aes_176.


0

20000

40000

60000

80000

100000

120000

2010-2011 2015-2016 2010-2011 2015-2016 2010-2011 2015-2016

EQF 1 or below EQF 2 EQF 3 or 4

EFA Courses Recorrente Track

Recognition, Validation and Certification of Competencies Modular training

0 10 20 30 40 50 60 70 80

Not confident with the idea of going back to something that is like school

No access to a computer or Internet (for distance learning)

Lack of prerequisites

Other personal reasons

Health problems or age not adequate for the training

No suitable education or training activity (offer)

Training takes place at a too distant place

Lack of employer support or public services support

Family responsibilities

Cost too high

Conflict with work schedule or training organised at inconvenient time

No need for (further) education and training

%


http://dx.doi.org/10.1787/888933711883

http://dx.doi.org/10.1787/888933711902



As shown in Figure 3.2, the lack of need for training was still the most commonly cited

barrier to participation, consistent with the lack of motivation discussed earlier. Conflicts

with work schedule, or training organised at an inconvenient time, were the second-

largest obstacle cited, reported by over 54% of respondents, well over the European

Union (EU) average of about 39%. In addition, over 22% of respondents reported that

training is conducted too far away from their homes or work, a figure that is over the EU

average of about 16% (see

In early 2017, the government launched the Qualifica Programme (Programa Qualifica)

to boost participation in adult learning. A network of 303 centres across the country, the

Qualifica Centres, is a key feature of the programme (Box 3.2).

Box 3.2. Portugal’s adult-learning network: The key role of the Qualifica Centres

There are 303 Qualifica Centres across Portugal (300 in Continental Portugal and

3 in Madeira), which specialise in the provision of adult-learning services. They

are operated by various types of institutions, public and private. About a third are

secondary schools, a third are Public Employment Services (Instituto de Emprego

e Formação Profissional, or IEFP) centres, and the last third is made up of such

institutions as private companies, employers’ confederations, union training

centres, local associations and municipalities.

Qualifica Centres offer information, vocational guidance, and recognition,

validation and certification of skills (RVCC), to adults age 18 and above, free of

charge. Not every centre offers every type of service, and each centre specialises

in RVCC in certain fields of training or in specific qualifications. Qualifica

Centres do not offer training but are often found in institutions that do. Staff in

centres includes a co-ordinator, technical staff specialised in RVCC, as well as

trainers or teachers specialised in the fields or qualifications for which the centre

provides recognition.

Qualifica Centres replace the Centres for Qualifications and Vocational Education

(Centros para a Qualificação e o Ensino Profissional, or CQEPs, closed in 2016)

and the New Opportunities Centres (Centros Novas Oportunidades, or CNOs,

closed in 2013).

Over 2017, the activities of the Centres have grown, particularly with respect to

referrals to training.

Sources: Ministry of Education, ANQEP.

In the first year of the programme, over 125 000 adults sought support at Qualifica

Centres, with monthly participation increasing throughout the year. These figures are

promising for a number of reasons. First, both participation and completion increased

compared to previous years. For example, data from the SIGO comparing 2017 to 2015

indicate an increase of 88% in adults participating in some form of training, and of 125%

in prior learning assessment and recognition. The number of adults obtaining a

certification, while modest compared to overall participation, increased by 282%

compared to 2015, with 10 157 adults certified in 2017 (see Table 3.1). Given that the

Qualifica Programme was officially launched in March 2017, and several Qualifica

centres started operations later in the year, participation may continue to rise as the

Centres are fully operational. Training activities to promote high performance of the



Qualifica Centres and media campaigns to raise public awareness that took place over the

course of 2017 may also further boost participation.

The programme includes notable shifts from previous adult-learning policies:

participation in training is strongly promoted alongside the completion of prior learning

and recognition processes (RVCC), with almost three adults involved in training for each

adult involved in RVCC in 2017. By contrast, in 2011-12, during the New Opportunities

Initiative (Iniciativa Novas Oportunidades), more adults were involved in RVCC than in

education or training (see Table 3.1). The Qualifica Programme also includes a focus on

guidance, with more tailored advice for learners based on their previous education and

training record, through instruments such as the Qualifica Passport (see Box 3.1). Some

stakeholders also noted the need to expand the role of the prior learning assessment and

recognition system (RVCC) to recognise and certify vocational competencies acquired

through all channels, both including non-formal and informal. Suggestions were also

made to extend the use of RVCC up to EQF Level 5, to make it easier to recognise

vocational skills of entrepreneurs and intermediate managers.

Monitoring efforts have also increased, against a set of national targets to be met by 2020.

These include: i) ensuring that 50% of the active population completes secondary

education, ii) increasing the adult-learning participation rate to 15% by 2020 and 25% by

2025, iii) serving 600 000 adults and the young who are neither employed nor in

education or training (NEETs) by 2020, and iv) reaching 40% of higher education

attainment in the 30 to 34 age bracket.

It is too early, however, to have data on the outcomes of participants and the impact of the

Qualifica Programme. It should be closely monitored over the coming years.

Table 3.1. CNO, CQEP and Qualifica Centres: results from 2015 to 2017

2011 2012 2013 2014 2015 2016 2017

Number of centres 452 424 4 241 241 241 303

Adults participating in some form of activities

257 971 87 147 776 40 483 58 747 88 321 125 893

Participation in education and training

65 751 39 279 1 563 15 911 36 318 61 532 68 281

Participation in recognition of prior learning (RVCC)

146 372 52 327 515 4 389 12 980 17 548 28 804

Adults receiving a certification

102 932 75 250 3 400 37 2 658 8 150 10 157

Note: Adult-learning centres took on different forms and names over the years. New Opportunities Centres

(CNO) were in place until 2012. The Centres for Qualifications, Vocational Education and Training (CQEP)

were in place between 2013 and 2016, and were replaced by Qualifica Centres in 2017.

Source: SIGO (2018), provided by the Ministry of Education.

Adults still make up a small share of post-secondary education enrolment

In countries with large-scale adult-learning systems, adult higher education tends to be

well-developed, and the student population in higher education is older on average than in

other OECD countries (Desjardins, 2017[3]). Reasons for this, in addition to upskilling,

may include career changes, for example. It is nevertheless notable that adults, despite

their work and family commitments, are accessing formal higher education in relatively



large numbers in these countries. In Portugal, 91% of new entrants to tertiary education

were under 25 in 2015, compared to an OECD average of 82% and only 72% in

Denmark, a country with one of the highest participation rates in adult learning in the

OECD. The average age of tertiary students in Portugal is 20, versus 22 on average in the

OECD, and 25 in Denmark (OECD, 2017, p. 283[4]).

Tertiary education

Students typically access tertiary education in Portugal by taking a standard exam after

secondary school (concurso nacional de acesso). Since 2006, adults over the age of 23

have had a special access regime that allows students to sit a special exam, distinct from

the one taken by graduates of secondary education to enter higher education programmes

at the bachelor level. This so-called “+23” regime requires that a 5% minimum of total

vacancies in universities and polytechnics be earmarked for students over the age of 23.

This percentage can be increased to 20%, or even more if there are unoccupied vacancies

in the general regime of access. Conversely, if the 5% places are not taken by students of

over 23, they can be occupied by younger students.

Approximately 6 000 adult students accessed higher education through the +23 route in

2013-2014. This represents a decline from previous years (approximately 10 000 students

in 2007-2008). The degree of institutional autonomy in higher education has led to

regional and sectoral variation (DGEEC, 2017[5]). According to stakeholders consulted

during the project, larger shares of adult enrolments take place in institutions and regions

whose population is declining.

Post-secondary non-tertiary and short-cycle tertiary education

Adults can also pursue two types of post-secondary programmes with a vocational

orientation: technology specialisation courses (Cursos de Especialização Tecnológica, or

CET), a post-secondary non-tertiary option, and new short-cycle tertiary education

programmes (Cursos Técnicos Superiores Profissionais, or CTeSP).

The CET grant double certification, both academic (EQF Level 5) and vocational, is

delivered by various training providers, such as schools, IEFP training centres, Tourism

of Portugal schools, technological schools and training providers certified by the

Direção-Geral do Emprego e das Relações de Trabalho (DGERT, in the Ministry of

Labour, Solidarity and Social Security). Established in 2004-2005, these courses used to

be offered by various institutions, including schools, training centres and polytechnics

and enlisted more than 12 000 participants in 2014-2015. As of 2015-2016, polytechnics

are no longer authorised to offer these courses. Student numbers declined that year to

6 300. It is possible that many students moved to the new CTeSP courses at this point,

although this is not clear from the available data. The CET were described as playing a

predominant role in helping companies hire qualified and specialised staff, and have been

shown to have employability rates above 90%. These courses were seen as valuable for

rapid entry into the labour market and meeting the needs of firms for technical skills. In

the tourism sector, stakeholders suggested expanding the use of CET as a way of

providing adults skills relevant in the labour market.

The CTeSP were created in 2014 and offer a route for adults seeking a post-secondary

VET educational qualification, although they do not grant a professional qualification. In

2016, a decree law upgraded the CTeSP, by integrating them into the legal regime of

“higher education diplomas” (European Commission, 2017[6]). These courses are now

classified at EQF Level 5. Delivered by polytechnic institutes exclusively, CTeSP provide



courses that last two years, including one semester spent on the job through an internship,

and deliver 120 credits in the European Credit Transfer and Accumulation System

(ECTS). Students graduating from CTeSP courses can access further tertiary study. These

courses are rapidly expanding. They started with 395 students in 2014-2015, serving

6 340 participants in 2015-2016 and 11 048 in 2017-18.

The CTeSP have been described by some stakeholders as an important way of expanding

and reinforcing the VET system in Portugal. The courses are also viewed as a way of

raising tertiary education attainment. Despite substantial growth in the past decade,

Portugal’s tertiary attainment is still below the EU average, as noted in the previous

chapter. At the same time, the pool of students allowed to pursue tertiary education

through the traditional route – the academic stream in secondary education – is shrinking.

This is due to a combination of demographic trends, with smaller student cohorts

expected in the future, and the increased proportion of students pursuing vocational

secondary education: in 2017, 45% of all secondary students in Portugal graduated from

the vocational track (OECD, 2017[4])

If the CTeSP are to become a useful route into tertiary education, both allowing for

further study and relevant to the labour market, it will be important to emphasise broad

access to a diversity of student profiles, including adults, and to provide mechanisms that

ensure the quality of this new option.

Whether the new CTeSP will become an important learning pathway for adults over 30

remains to be seen. In 2015-2016, the typical CTeSP student was a male (64%) over 20

(67%) but under 25 (84%), a full-time student (63%), and a high-school graduate (91%)

receiving no financial aid (>77%) (DGEEC, 2017[5]). Recent information for providers

interested in funding these courses suggests that the target population is adults of 18 to 30

(Programa Operacional Capital Humano, 2017[7]). To attract low-skilled adults, robust

pathways between programmes at a lower skill level and CTeSP would be required.

Gender imbalances are also noteworthy, in both CTeSP and CET. In both programmes,

the participation of women has been low. In 2015-16, women represented about a third of

enrolments in these programmes (DGEEC, 2017[5]). According to the National Council

for Education, excluding universities from offering CTeSP has clarified the different

missions of universities and polytechnics but may have excluded certain fields of

education and training only delivered by universities that had had a high participation of

women (CNEDU, 2014[8]).

Another important issue relates to the respective roles of the CET and CTeSP was the

subject of much debate during the project, with many stakeholders raising concerns about

their relationship and possible overlap. Indeed, these are both vocational programmes,

include compulsory on-the-job training and serve as an entry point to higher education for

high-school graduates in professional tracks.

Clarifying their roles is critical to ensure that learners access the programme to suit their

particular needs and that providers have a clear understanding of the goal of each

programme and its specificity. This is particularly important from the perspective of

orienting low-skilled adults to programmes to meet their needs. Clarifying the role of

both programmes would also help ascertain how individuals could move from one

programme type to the other.



Barriers to access and success in higher education

The higher education system in Portugal has fast expanded and quality has improved over

the past decades. Despite budget constraints in the years following the crisis, investments

in the system are rising again. However, a clear strategy for the tertiary education,

research and innovation system underpinned by a stronger funding framework are needed

to support a more innovative and productive economy, with widely shared benefits across

society (OECD,(n.d.)[9]). The access and success of adults in higher education is one area

that can be improved.

Stakeholders suggested that many barriers continue to affect adult students who may be

interested in higher education. The economic crisis was one factor cited as possibly

having led to the drop in adult enrolments through the +23 regime described earlier. This

may be due in part to the financial constraints involved in pursuing higher education and

the lack of dedicated financial support to cover fees and other expenses (see Chapter 5 for

fee levels in Portugal). Other factors may also explain this decline. One raised by

stakeholders is the lack of information about the benefits of higher education and on the

possible routes to higher education. Another potential explanation may be that the number

of adults who are both interested and academically prepared to engage in higher

education has started to decline after the robust growth in enrolments that followed the

opening of the +23 route.

In a similar vein, the lack of academic preparedness of many adults is a barrier that

affects both access and success, given that many Portuguese adults left education long

ago. Stakeholders noted an insufficient provision of dedicated academic support for adult

students. They also noted the lack of flexibility of delivery as complicating participation.

Another critical element would be to ensure that effective pathways exist between adult-

learning programmes targeted to different skill levels, so that adults who may first need

basic skills upgrading can move on to further levels of education and training.

As for labour-market outcomes of post-secondary and tertiary graduates, strong outcomes

require co-ordinated inter-ministerial action, so that the supply and the demand of highly

skilled individuals go hand in hand. In Portugal, degrees in higher education yield high

returns; earnings are almost 70% higher than earnings of workers with upper secondary

education (OECD, 2017, p. 114[4]). However, to maintain high returns, opportunities for

individuals to use their skills are also critical. This issue is reflected for instance in a

recent study that showed that the wage premium of a CET over an upper secondary

diploma significantly increased between 2006 and 2015. Most of this wage advantage

was explained by differences in occupation and type of contract, i.e. in the better jobs that

CET graduates secure. These results indicate that some of the returns may not be easily

scaled up: to maintain such outcomes, the growth of quality jobs in Portugal would need

to keep pace with the growth in the number of graduates at this level (Figueiredo et al.,

2017[10]). This should be borne in mind given the current expansion of post-secondary

non-tertiary courses.

Employer-sponsored training can be improved

Portugal is encouraging employer-sponsored training through two main policy levers:

legal requirements, as noted in Chapter 2, and specific programmes targeted to

employers. Laws introduced in 2009 regulate employers’ duties for providing

professional training. Every employee is entitled to a yearly minimum of 35 hours of

education and training, which may be postponed for up to two years. Cumulatively,

employers are require to give training to a minimum of 10% of their workforce annually.



Despite these requirements, and the fact that employer-sponsored training constitutes a

large part of all adult learning taking place in Portugal (see Annex A), the rate of

employer-sponsored training is relatively low in a comparative perspective. According to

a 2015 Eurofound survey, less than 20% of Portuguese workers reported participating in

the past year, compared with a EU28 average of over 40% (OECD, 2017[11]). Employer-

sponsored training in Portugal is mostly delivered by large firms, tends to be very short in

duration, and involves modest investments per participant on average (see Box 3.3).

Further, stakeholders consulted during the project, including employers, noted that there

is a widespread practice of providing a minimum number of training hours to meet the

legal requirement, and often in general-purpose courses or mandatory fields (e.g. health

and safety), as opposed to training directly relevant to the firm’s production processes or

learner’s needs. In other words, the value and relevance of the training that does occur

may need improvement.

Box 3.3. Employer-sponsored training in Continental Portugal in 2015

Participation rate: Over 800,000 employees, or about 33% of all employees.

Firm size: Of companies below 10 employees, 11.9% provided training,

compared to 56.7% of enterprises with 500 employees or more.

Sectors: Workers in network industries (electricity, water, gas) and finance and

insurance were a large majority of those receiving training, with rates of 81.5%

and 75.1%. They represented close to 5 500 and 60 000 workers, respectively.

By comparison, more than 200 000 employees worked in manufacturing

(indústrias transformadoras), but only 33.7% participated in training. Trade

(wholesale and retail, including automobile) accounted for over 300 000 workers;

training rates ranged between 36% and 43% of employees.

Training providers: 70.4% of workers received training by the employing firm

itself, 23.5% were trained by specialised training companies, and 18.5% by

companies that were not specialised in training. Fewer than 10% of workers

received training from union or employer associations, universities or schools, or

the IEFP (public employment and vocational training service).

Training areas and intensity: Training in health and safety represented the

largest share of training (over 20.3%), followed by organisational and business

management (12.8%). The average duration of training per employee was

28.7 hours.

Costs: In total, firms invested more than EUR 229 million on training. Almost all

costs (94%) were borne by firms, over half of which came in the form of lost

work, because 92% of workers underwent education and training during work

hours. The average cost per trainee was just below EUR 400.

Participant profiles: No significant difference was observed in participation

across age cohorts, but the higher the level of education, the greater the

participation.

Source: Ministério do Trabalho, 2017.



For unemployed individuals, active labour-market policies (ALMPs) are a main channel

to access training. Participation in ALMPs in Portugal between 2010 and 2014 rose more

than 50%, from close to 340 000 participants to approximately 535 000. This was likely

due to the combination of high unemployment rates after the recession, and Portugal’s

labour-market reforms in the period 2011-2015, which linked the receipt of

unemployment benefits to requirements such as participation in training (OECD,

2017[12]).

Yet, compared to other OECD countries, in 2014, relatively few job seekers participated

in ALMPs in Portugal (OECD, 2017[11]). In addition, stakeholders noted that the amount

of work-based learning included in training programmes that are part of ALMPs is

limited in practice. This raises concerns that the policies as currently designed may not be

able to increase the employability of the unemployed effectively.

Training with work-based components for youth who are NEETs has also grown in the

context of the EU’s Youth Guarantee, which includes a commitment to finding a job,

traineeship or some form of training programme for every young person within four

months of their leaving the education system (OECD, 2015, p. 66).

According to the latest OECD data, close to 21% of the cohort of 20 to 24 years old was

NEET in 2016, placing Portugal above the OECD average of 16.3%, and close to

countries like France and Ireland. The equivalent Eurostat rate was 17.2% (Eurostat,

2017[13]). This difference is largely explained by the exclusion of youth who are in non-

formal learning from the NEET rate. This suggests that they may be a substantial level of

participation of such youth in non-formal programmes, although what these programmes

entail in terms of content, format and learning outcomes is not clear.

Practices to improve access to adult-learning opportunities and their quality and

relevance

Targeting the supply where need is greatest and raising quality is needed

Any expansion of the system should be targeted

In a context of scarce public funding, Portugal faces important trade-offs when

considering the sustainability, improvement and expansion of its adult-learning system.

This section proposes an overall focus on low-skilled adults, understood as being those

who have not completed upper secondary education. Several other groups at risk of

having low skills, or of skill erosion, such as NEETs and the long-term unemployed, are

also identified.

This focus is consistent with Portugal’s efforts for many years, is currently pursued

through the Qualifica Programme, and was broadly supported by stakeholders during the

National Skills Strategy project during the diagnostic phase (OECD, 2015[1]). It supports

the economic imperative to raise the skills of the population to support national growth

and productivity (OECD, 2017[11]). At the same time, it recognises how skills can

promote inclusive growth, an important priority in Portugal given its large socio-

economic and inter-generational inequities (Governo de Portugal, 2017[14]).

Low-skilled individuals, however, represent a large proportion of Portugal’s adult

population. This has raised questions as to whether further targeting would be

appropriate. A focus on certain economic sectors, for instance, tourism, where there is an

urgent need for qualified workers (Box 3.4), may constitute a relevant target to help meet



the fast-growing demand. At the same time, building a highly skilled workforce for the

long term requires a broad diversity of skills to ensure that workers can move between

sectors and occupations.

Another consideration in identifying specific target groups in a context of limited

resources is the potential trade-off between economic and social outcomes. For example,

focusing on young, low-skilled adults can generate higher returns for individuals and

government, because they will stay longer in the labour market. On the other hand, older

adults with less time to benefit from the investment are likely to have the lowest skill

levels and the greatest need for basic upskilling.

Box 3.4. Tourism in Portugal: A sectoral example of skills needs

The tourism industry is a sector that has been one of the fastest-growing in

Portugal in the past two years. The present situation highlights the need for rapid

upskilling of a large number of individuals in the tourism workforce:

53 000 new jobs were created in the tourism industry in 2017, 40% of all

new jobs created in Portugal that year

80 new hotels will be built in Portugal in the next two years

30% of individuals working in tourism have completed secondary or post-

secondary education. The Tourism Strategy 2027 of the country expects

this number to grow to 60%.

substantial growth in tourism from new markets, especially Asia, will

require new competencies (e.g. foreign languages).

Source: Ministry of Economy, 2017.

Low-skilled adults, NEETs and long-term unemployed

Low-skilled, NEETs and the long-term unemployed need opportunities that combine

foundational skills and technical skills relevant in the labour market. Participation in

courses below the upper secondary level fell between 2011 and 2015, and after a period

of stability, started to rise again in 2017. The current policy of expanding access to these

programmes, with a focus on the programmes’ quality and outcomes, is thus

recommended.

The Upskilling Pathways initiative of the European Commission, launched in December

2016, offers a useful instrument. It provides funding to develop training specifically for

adults who have not completed upper secondary education, focuses on foundational skills

training and labour-market relevant qualifications, and offers flexible delivery. The model

emphasises a three-step approach that tailors the training to: i) an assessment of the

individual’s particular need for skills, ii) solutions tailored to what the individuals have

already learned and their current needs, and iii) skills validation and recognition. This

model, which Portugal has already began to implement by focusing on dual certification,

both academic and vocational, is worth further pursuing.



Employers, in particular SMEs and micro-enterprises

In line with the low levels of education among adults, close to 54% of firms’ owners or

managers in Portugal have attained only a lower secondary education (OECD, 2017[11]).

The use of high-performance work practices (HPWP) in firms is a useful indicator of how

much and how well employers utilise their employees’ skills to encourage productivity

and innovation. These practices include aspects of work organisation (teamwork,

autonomy, task discretion, mentoring, job rotation and applying new learning) and

management practices (employee participation, incentive pay, training practices and

flexibility in working hours). Data for Portugal suggest that HPWP tend to be more

frequent among more educated workers and also lower in the manufacturing sector,

compared to other workers and sectors in Portugal (Ferreira, Neira and Vieira, 2010[15]).

Given the large number of low-educated workers, and given that manufacturing is an

important employment sector, the use of HPWP is probably low. This in turn limits skills

use and productivity (OECD, 2016, p. 79[16]).

To address low provision of training in small firms, Portugal has complemented its

regulatory regime with other approaches, including the Action Training model (Box 3.5).

Box 3.5. Training Action in Portugal: Focus on employers

The Training Action (Formação-Ação) model has been developed in Portugal

since the late 1980s and has taken different forms over the years. It is currently

considered to be a business incentive as part of the programme Compete2020,

which aims to boost the qualifications and internationalisation of small and

medium-sized enterprises (SMEs).

Approach: The Training Action Programme SME Academy is one of several

Training Action programmes, and takes place over a 12-month period. Each

participating SME benefits from training workshops, bringing together several

SMEs (119 hours per SME), and consulting services tailored to each company

(78 hours). The training focuses on themes such as boosting the efficiency of

production processes, marketing and sales, financial management, business in a

digital environment and internationalisation. The consulting services aim to help

employers develop training plans.

Results: In 2008-2015, the Training Action SME Academy supported 1 482

enterprises, through 42 projects (north, centre regions, Alentejo and Algarve).

Funding and targets: Funding for Action Training programmes is largely based

on EU structural funds. The budget approved in 2017 for the Training Action

SME Academy programme was about EUR 405 000, with a goal of covering 600

SMEs. The overall budget for Training Action programmes as part of Compete

2020 is about EUR 71 million, and the goal is to reach 23 000 SMEs by 2020.

Governance: the National Agency for Competitiveness and Innovation (Agência

para a Competitividade e Inovação, or IAPMEI, I.P.) is responsible for co-

ordinating the funds received through the European Social Fund’s Human Capital

programme for Action Training programmes. About 20 sectoral business

associations across the country promote the programmes locally.



Financial incentives, discussed in Chapter 5, constitute another approach used in Portugal

to encourage the provision of employer-sponsored training.

Other groups: young adults and those with “medium skills”

The lifelong learning needs of groups who will play a key role in raising the country’s

productivity now and in the future are also of key concern. These include adults already

in the workforce who have medium levels of skills and education and who could upgrade

those skills to adapt to new and more complex tasks and jobs. They also include the many

recent graduates from secondary-level VET programmes.

For adults with a medium level of skills, a diversified and quality VET at all levels,

including post-secondary, is necessary. Portugal has substantially expanded vocational

education and training since the 2000s, reversing a trend of disinvestment in VET in the

1970-80s. Yet, while upper secondary level VET has grown rapidly, options beyond that

level or at that level but focused on an adult audience are limited. Despite the perception

in Portugal that VET remains a second-choice option, many participants in the first

stakeholder workshop of the project commented that VET options would in fact address

the needs of a wide range of adult learners with different profiles, including the long-term

unemployed and NEETs, and those who are employed.

The adult-learning system may also provide an opportunity for training groups that do not

benefit from regular provision. A growing number of migrant youth in Portuguese

secondary schools need further skills, including learning Portuguese as a second

language. While there is a dedicated programme for this purpose in secondary education,

the provision is insufficient to guarantee access for all, and students who opt for VET

programmes may not have access to such programme. This often incentivises migrants

that have recently arrived to the country to opt for the academic route, rather than a

vocational one, which may not always be best suited to their needs (Liebowitz

et al.,(n.d.)[17]). The adult-learning system may, in such cases, offer training in Portuguese

as a second language to young migrants who have no other options in the education

system.

Programmes need to be more flexible and relevant to the labour market

The design of adult-learning programmes is important to promote participation and

improve outcomes. Several studies offer insights on practices for increasing participation

in adult learning (OECD, 2005[18]; European Commission, 2015[19]; Windisch, 2015[20]).

Increased participation is viewed as a key objective, based on the benefits of participation

outlined in Chapter 2 (Box 2.4). Regarding active labour-market policies, where more

information is available, research highlights some of the specific features and conditions

linked to positive results (Box 3.6).



Box 3.6. Evidence on government-sponsored training programmes: Programme

features, target population and economic context matter

Evidence of the returns of adult learning from international studies was presented

in Chapter 2. The findings presented here focus on specific aspects of adult-

learning programmes found to have an impact on participants’ outcomes. These

findings apply in particular to active labour-market policies, for which more

evidence is available than for other types of adult-learning programmes.

Content: In Portugal and other countries, higher returns (employment and

earnings) are found for active labour-market programmes that involve work-based

components, such as subsidised internships or contracts, compared to classroom-

based training (Dias and Varejão, 2012, p. 129[21]; OECD, 2017, p. 52[12]; McCall,

Smith and Wunsch, 2016, p. 632[22]). Yet, Lima (2012[23]) found the Educação

Formação de Adultos (EFA) courses improved the likelihood of transition to

employment, and that Formações Modulares (FMC) reduce the length of

unemployment.

Populations targeted: Effects of programmes depend not only on the design of

programmes but also on the characteristics of participants. In a review of

government-sponsored training in Denmark, France, Germany, the

United Kingdom, the United States and Sweden, better outcomes were found for

women participants and the long-term unemployed, whereas poorer results were

found for older workers and youth (Card, Kluve and Weber, 2015[24]; McCall,

Smith and Wunsch, 2016[22]). Not all approaches work for all learner profiles. For

instance, McCall et al. report that vouchers do not work well for disadvantaged

groups, who fare better with approaches that provide skills assessments and

guidance (2016, p. 629[22]).

Economic context: McCall et al. find that the effectiveness of government-

sponsored training for adults is higher when the unemployment rate is higher at

the start of the programme, and lower when training is required to renew benefit

eligibility (2016[22]). On the other hand, training apprentices may be more

beneficial to employers in tight labour markets (Mühlemann, 2016[25]).

While a number of important features are listed in Recommendation 4 at the end of the

chapter, two important areas of focus are described in detail below: flexibility of delivery

with adequate support, and providing a broad set of skills through work-based learning.

Flexibility and supports: a requirement at all skill levels

Flexible delivery approaches suited to the needs of adult learners can help encourage

participation, and apply to all learning programmes, whether at the level of foundational

skills, VET or in higher education (European Commission, 2015[19]; Windisch, 2015[20]).

Research on adult learners in the Portuguese polytechnic sector provides specific

examples of practices to make learning programmes more flexible. For example, adequate

guidance and supports, delivery modes (such as “b-learning”, which includes both on line

and face-to-face components) and schedules (both weekdays and weekends), and the

inclusion of practical and work-based components were all found to help increase the

persistence of adult learners (Duarte, Pires and Nobre, 2017[26]). In the tourism sector,



innovative training approaches that provide flexible access and methodologies, including

work-based learning, were raised as a critical way of meeting the immediate demands for

qualified employees. Flexibility is also important from the perspective of efficiency and

effectiveness. Flexible programmes can help with retention and completion of adult-

learning programmes, which is particularly important in Portugal, since challenges

remain in this area (Agência para o Desenvolvimento e Coesão, 2016[27]).

In this context, current efforts to modularise training should be pursued and co-ordinated.

These efforts include: the implementation of the European Credit system for Vocational

Education and Training (ECVET); the short training modules included in the National

Catalogue of Qualifications that can be combined in various ways (UFCDs) and

approaches such as those of the modular training courses (FMC) mentioned above. It also

includes innovative initiatives, such as the “Learning Factories” as part of the

Indústria 4.0 strategy, which involves a set of physical “labs” where learners can develop

relevant skills (e.g. digital and technical skills relevant to specific sectors) and apply these

skills in a real business context.

Supports for learner persistence are also important, and dedicated investments should be

set aside for this purpose. As previously noted for higher education, several stakeholders

noted that the lack of dedicated pedagogical and academic supports for adults may be

limiting participation in (and completion) of programmes.

Finally, costs were raised as a potential barrier. Direct costs are low for adults who want

to participate in programmes at the secondary level and below, as these are mostly free of

charge. However, indirect costs, such as transport or child care costs, and the opportunity

cost of not working, are significant. These costs may be particularly high for some

disadvantaged populations (e.g. low-income, immigrant and Roma communities) and in

some local areas (e.g. rural and inland) that tend to have high concentrations of different

types of disadvantage. In higher education, the insufficient support provided by the

regular aid system and the lack of dedicated financial support for adults to cover fees and

other expenses was noted as an obstacle. Targeted financial aid to support adult learners

may need to be considered, as will be discussed in Chapter 5.

Providing a broad set of skills through work-based learning

In a fast-changing economy, individuals increasingly require a broad set of skills,

including basic cognitive skills, socio-emotional skills and technical skills relevant in the

labour market. At the school level, Portugal has made major efforts to identify a “skills

portfolio”, outlined in the Student Profile by the end of compulsory schooling in 2017

(Box 3.7).



Box 3.7. Students’ profile by the end of compulsory schooling in Portugal

In 2017, Portugal developed students’ profiles, setting out what young people are

expected to have achieved by the end of compulsory schooling. This reference document

for the organisation of the education system is informed by stakeholder consultation. It

presents the principles and the vision for the educational system, and the values and

competences students should develop.

Several principles form the basis for this profile, which is intended to incorporate

humanistic values and to be a stable reference point for the education system. It

emphasises the centrality of knowledge and learning and aims to promote inclusion,

coherence and flexibility in educational practice. It also stresses the importance of

adaptability, audacity and raising awareness of environmental sustainability issues as

critical to a 21st century educational approach.

The vision outlines what is expected of young people who leave compulsory schooling.

This includes the expectation that the citizen develop critical thinking, self-awareness,

autonomy and responsibility. Individuals should be able to cope with uncertainty in a

fast-changing world, to use the skills they have developed, to continue lifelong learning,

and should respect the fundamental principles of democratic society and the rights,

guarantees and freedoms on which it is based.

A set of values is outlined, for students to practice in all learning activities. These

include: responsibility and integrity, excellence and high standards, curiosity, reflection

and innovation, citizenship and participation, and freedom.

The competences to be acquired require a combination of knowledge, skills and attitudes,

and are of a diverse nature. These include: the use of languages and texts, information and

communication, reasoning and problem solving, critical and creative thinking,

interpersonal relations, autonomy and personal development, well-being, health and

environment, aesthetic and artistic sensitivity/awareness, scientific, technical and

technological knowledge, and body awareness and mastery. Operational descriptors are

provided to help implement practices leading to the acquisition of these competences.

Source: Martins et. al. (2017[28]).

Adults need a broad skill set relevant to the labour market, whether they are working,

looking for employment, hoping to upgrade their skills to improve their resilience and

future employability, or in search of changing jobs, occupations or sectors.

Programmes that combine foundational skills with the acquisition of an education

qualification and/or delivered in work-relevant context have proven valuable for adults in

various countries.

For instance, in Norway, providing basic skills in a work-relevant context is promoted by

funding targeted to employers for the delivery of relevant training (see Box 5.9, in

Chapter 5). In the United States, Washington state’s I-Best programme, which combines

literacy and numeracy training and on-the-job training has been found to have a positive

impact on the learning of adults and to yield public benefits through increased wages and

tax payments (Jenkins, Zeidenberg and Kienzl, 2009[29]; Washington State Board for

Community and Technical Colleges, 2013[30]).



During the project’s first workshop, conducted in May 2017 in Lisbon, stakeholders were

asked to reflect on the key skills needed by the Portuguese economy, in 2017, and then in

five years. The following highlights reflect the views of participating stakeholders:

Digital and socio-emotional skills, including teamwork, creativity and

communication, were identified as critical both today and in the future.

“Technical” skills were more frequently cited as required in the current

economy, but more advanced or specific technical skills were seen as

increasingly needed in the future (e.g. computing, data analysis).

Entrepreneurship, critical thinking and resilience were most often noted as

required skills for the future.

Language skills, including English, French, German, and Mandarin were noted

as being particularly useful in the tourism sector to prepare professionals to

interact with tourists, but were also noted as important in other sectors for

interacting with foreign investors and residents.

The Portuguese government has begun tackling poor digital skills, which are widespread

among adults in Portugal (see Box 3.8). Its youth perform relatively well compared to

those of other EU countries as shown in Figure 3.3 (European Commission, 2017[31]). The

government is addressing low digital skills in the large-scale Incode2030 strategy.

Spanning the period 2016-2020, the strategy involves both existing measures from

programmes such as Qualifica and Indústria 4.0 and new measures. It also includes

quantified targets: 20 000 enrolments in digital literacy programmes by 2020, 2% of GDP

invested in R&D by 2025 and 80% of the population with basic digital skills by 2030

(Governo de Portugal, 2017[32]).

The strategy is comprehensive, based on five domains of action. Inclusion is a first

priority, with measures to raise awareness of the benefits of digital skills, online platforms

for self-diagnosis and skills development, and a system to certify the digital skills.

Second, the strategy aims to improve the use of digital resources and teacher training in

schools. Third, new qualifications focused on information and communication

technologies at EQF Levels 4 and 5 will be created, along with centres for digital training

in higher education institutions and IEFP centres. The fourth and fifth axes focus on a

specialisation in advanced digital technology through the creation of bachelor and

master’s degrees, and increased research activity in the field. As noted in Chapter 4,

several ministries have a role in implementing this strategy; for example, the Directorate-

General for the Qualifications of Public Servants is responsible for the improvement of

digital competencies in the public service.

Tracking the results of this strategy will be necessary. While Incode2030 involves a

notable number of activities for the young, Portugal is among the ten EU countries with

the highest digital skills among teenagers and young adults. Socio-economic inequality is

still a cause for concern among these cohorts, but inter-generational inequality is

particularly acute in this area. Keeping track of the outcome of the strategy for adults over

25 is important for both economic and social outcomes in Portugal.



Box 3.8. The digital economy and society: Strengths and weaknesses in Portugal

In 2017, Portugal ranked 15th out of 28 countries in the European Commission’s

Digital Economy and Society Index (DESI). Portugal performs relatively well

in integrating digital technology in enterprises (No. 9), developing digital public

services (No. 10), despite a notably low score for open data. It also does relatively

well in Internet infrastructure coverage (No. 9), despite low take-up of mobile

broadband.

Portugal’s performance is among the lowest in the EU28 with respect to levels of

Internet use (No. 19) and particularly human capital (No. 22). However, there is a

strong inter-generational divide regarding digital skills. Portugal had the eighth-

highest share of graduates in science, technology, engineering and mathematics

(STEM) and levels of digital skills in the 16 to 24 age cohort, scoring

significantly above the average in the European Union (see Figure 3.3). By

contrast:

52% of the Portuguese population lack basic digital skills, 30% having no digital

skills at all (based on types of information and communications technology, or

ICT, usage by individuals and an estimate of the skill levels required for such

usage).

26% of the adult population, and 22% of the active labour force have never used

the Internet, compared with EU averages of 16% and 22%

Portugal ranked 22nd in the percentage of ICT specialists among those employed,

at 2.2%.

Source: (European Commission, 2017[31]; Eurostat, 2017[33])

Figure 3.3. Above-basic overall digital skills, share of individuals, 2016

Source: Eurostat (2018), Individuals' level of digital skills [isoc_sk_dskl_i],

http://ec.europa.eu/eurostat/cache/metadata/en/tepsr_sp410_esmsip.htm.


0

10

20

30

40

50

60

70

80

90

Denmark Croatia Estonia Netherlands Finland Portugal EU (28) Spain France Italy

%

16 to 24 years old 25 to 54 years old 55 to 64 years old

http://ec.europa.eu/eurostat/cache/metadata/en/tepsr_sp410_esmsip.htm

http://dx.doi.org/10.1787/888933711921



Clarifying roles and better co-ordinating adult-learning providers is critical

Building on providers’ strengths would help avoid duplication

The adult-learning delivery system is, like the programmes available, highly diverse.

Providers include elementary, secondary and professional schools (both public and

private), IEFP centres, as well as other education and training bodies supervised by

various ministries. These, include, for instance, schools managed by Tourism for

Portugal, training providers certified by DGERT, and institutions of higher education.

Employers, of course, are also a major provider: in 2015, over 45 000 companies

provided some form of employer-sponsored training in Continental Portugal (Ministério

do Trabalho, 2017[34]).

In this complex landscape, stakeholders noted the challenges of maintaining quality. An

appraisal of the delivery network is thus needed to limit duplication and strengthen

synergies between different institutions, which would help improve both the efficiency of

the system, its clarity for users and quality monitoring and improvement. Throughout the

project, stakeholders described various providers as having distinct strengths:

Qualifica Centres were described as a single point of access for adults, assessing

user needs and directing them to appropriate training options.

Schools were viewed as well-equipped for basic skills delivery and accessible

due to their strong footprint in communities – for example, a focus on parents can

help raise adults’ interest in learning.

IEFP Centres were viewed as well-placed to direct and deliver labour-market

relevant training, due to the strong relationships they have established with

employers and experience with labour-market needs.

Polytechnic Institutes, which have quality-assurance mechanisms similar to those

in universities2, hold promise for developing a more robust and recognised VET

offer at tertiary education level that can serve a broad audience, including adult

learners.

The co-ordination of these various institutions can be improved, and the existing

infrastructure leveraged. This is particularly important, as the funding available for the

network of Qualifica Centres is lower than what was available during the New

Opportunities Initiative, which ran from 2006 to 2013, although the funding declined

from 2011. These reduced resources further increase the importance of finding

complementarities and synergies within the delivery network.

As both Qualifica and IEFP Centres are responsible for counselling adults and matching

them to learning opportunities, some stakeholders have noted that competition for users,

rather than co-operation, can occur at the local level. Given the limited staff capacity,

efforts should be made to clarify roles and increase co-ordination. This could build on

ANQEP’s current work to promote collaboration among Qualifica Centres at the regional

level, through frequent visits and meetings, and also involve other key local entities, such

as IEFP offices.

To do so, stakeholders outlined the need for enabling conditions, in particular appropriate

governance and financing mechanisms, which clarify the mandate of the various

institutions, and incentivise providers to partner at the local level. These issues are

discussed in the next two chapters.



Better assessing learners’ needs can help maximise the use of the system

Adequate skills needs assessment and guidance can raise motivation to engage in learning

and also help improve learners’ outcomes and the effectiveness and efficiency of the

delivery system.

The new Qualifica Passport, discussed earlier, is a promising online tool that provides

self-directed guidance for learners, based on their education, training and employment

history, current situation and objectives. It can also be a key tool for staff at Qualifica

Centres to direct them to appropriate learning opportunities. Good practices in the area of

individual skills assessment and guidance can also be found in the public employment

services, which have developed skills profiling systems to match people with jobs (for

Portugal, see Box 3.9). Beyond a focus on access to employment, these approaches may

be useful for the matching adults with the right programmes to raise their skills.

Box 3.9. Practices from Portugal’s Public Employment and Vocational Training

Service (IEFP)

The high unemployment that characterised the years 2011-2014 spurred

authorities to improve employment services. Closer monitoring and more

effective interventions to limit long-term unemployment were initiated. New tools

were devised that promote job seekers’ active participation in devising tailor-

made solutions for their particular situation, and ensure wide accessibility through

ICT technology. These new instruments include:

A Personal Employment Plan (Plano Pessoal de Emprego, or PPE),

which is formulated either on line or live by the job seeker, together with

the employment services, and sets out actions, to which the job seeker

commits, for finding employment, as well as the active employment

measures to be delivered. The PPE may be readjusted or even

reformulated over time.

A profiling system that predicts a job seeker’s risk of remaining

unemployed for more than a year by using the estimates obtained with a

discrete choice (logit) model applied to historical data. The model

controls for individuals’ characteristics, such as gender, age, work

experience, or education. Job seekers are then segmented into one of three

groups, depending on the predicted risk of long-term unemployment. The

segmentation is validated by a counsellor, and determines the

intensiveness and frequency of the measures applied.

Career Managers are officers responsible, among other things, for

matching employers’ needs with job seekers’, and for following up on the

matches made.

Sources: Andersen, Feiler and Schulz (2015[35]); www.iefp.pt.

Profiling methods are promising but require intense engagement of both learners and

service providers. They are often enforced through mutual obligation frameworks (with



participation as a condition of receipt of employment benefits), which may be difficult to

replicate in the context of adult learning beyond ALMPs.

Other tools, such as self-directed assessments, have some advantages, including low cost,

confidentiality and ease of use, provided that prospective learners are aware of these

tools. One example is the OECD Education and Skills Online tool (OECD, 2017[36]). In

Ireland, the National Adult Literacy Agency (NALA), an independent charity created in

1980 with the mission of helping those with low literacy, numeracy and digital skills,

takes an original and low-cost approach to self-directed basic skills assessment, which is

described in Box 3.10.

Strengthening pathways between programmes

Pathways between programmes are important from the perspective of accessibility and to

improve system efficiency. For learners, credit recognition – already well-developed in

higher education at the European level – enables mobility, increases study options and

saves both time and cost by not repeating previously acquired knowledge and skills. In

the area of adult learning, efforts to promote such recognition are equally important, and

are contingent on strong quality-assurance mechanisms. One approach that Portugal

should further pursue is to facilitate the recognition of vocational education and training

(VET) credits, through the implementation of the European Credit System for Vocation

Education and Training (EQVET). Further work to facilitate pathways within the formal

adult-learning system may also be needed, for instance to ensure that pathways exist

between courses up to the upper secondary level, post-secondary non-tertiary courses

(e.g. CET), and short-cycle tertiary courses (e.g. CTeSP).

Mechanisms to enable learners to have their informal learning recognised, such as that

acquired through employer-sponsored training, can help facilitate pathways between the

formal and informal parts of the adult-learning system. Being able to assess learning

outcomes acquired informally is an important step, as discussed in the next section.



Box 3.10. Ireland: WriteOn programme

Overview and Objectives: Active since 2008, the WriteOn programme is part of

a broader Distance Learning Service (DLS) managed by the NALA.

It aims to provide quality, free, confidential literacy support on line and by

telephone with qualified tutors. Specifically, the programme provides online skills

assessment and online learning opportunities to facilitate both the acquisition of

literacy skills and accreditation for adult learners at Levels 2 and 3 of the National

Qualifications Framework of Ireland.

Skills assessment and orientation: The programme offers an online tool

allowing individuals to undergo a step-by-step process to assess their skill levels.

It then provides access to learning resources and individualised tutoring on a free

telephone line.

Outreach: An important aspect of the NALA’s role in providing broad

information on literacy opportunities is through mass media, in particular through

the broadcasting since 2000 of 13 prime-time TV series funded by the

Broadcasting Authority of Ireland. Reaching audiences of close to 300 000, the

series focused on showing the relevance and returns to basic skills in daily life,

inviting viewers to access NALA services, including the free tutoring service.

Results: Data collected by NALA suggest that there are 10 000 calls annually

from adults seeking advice on how to upgrade their skills, that 32 000 learners

have created an online learning account, and 2 500 learners went on to obtain

14 500 national certificates at Levels 2 and 3.

In addition, 180 learning centres across the country and 31 of the 33 national

vocational education committees use the WriteOn programme to support blended

teaching methods and accreditation.

Evaluation approach: Annual monitoring visits are conducted by Quality and

Qualifications Ireland (QQI). Independent evaluations are regularly

commissioned for the programme and the overall distance learning strategy.

Source: National Adult Literacy Agency (2017[37]).

Mechanisms to promote, monitor and assure quality need reinforcement

The importance of raising the quality of adult learning has been a recurring theme in the

project. Stakeholders emphasised the importance of quality to enhance outcomes for

learners, increase participation, and encourage the sustainability and expansion of public

and private investment in adult learning.

Monitoring of outcomes in both formal and informal learning is needed

Although it collects a large amount of data, Portugal lacks a systematic approach to

monitor the inputs, outputs and outcomes of adult learning.

To strengthen monitoring and evaluation, Portugal can build on several efforts under way.

These include the ANQEP’s new practices to monitor the activities and results of

Qualifica Centres discussed in Chapter 2. Work undertaken by the National Institute of



Administration (Instituto Nacional de Administração, or INA) to assess skills needs and

enhance skills development in the public administration is also promising in this area.

Relevant aspects include: i) the collection of information about skills needed in the public

service, as discussed in the previous chapter, but also on training completed, ii) a digital

platform to co-ordinate training, using a business intelligence solution and open data,

which provides a broad view of the training undertaken across the public service and

helps to guide quality improvements, and iii) methodological supports to increase the

capacity of the public service to manage training, including assessing the impact of the

training completed.

In addition, measuring and reporting on outcomes such as employment and continuing

study after programme completion has become a requirement for programmes funded by

European structural funds, especially the European Social Fund (ESF), as part of the

current funding agreement between the EU and Portugal (Portugal 2020). In addition, in

the current programming period, 6% of all structural funds are set aside, to be paid at the

end of the period, based on performance.

Further to this agreement, Portugal has established national outcomes standards, requiring

that 50% of individuals who have completed certain ESF-funded programmes be

employed or continue studying six months after the end of the programme. These include

programmes with dual certification, such as vocational education and training courses at

secondary level, the CET, the CTeSP, and education and training for adults (EFA

courses). They do not include short-term training such as modular training or short-term

basic skills training. For the programmes subject to these regulations, the programme will

no longer be financed by European funds if the result is less than 50%.3

The Portuguese government is also contracting specific targets regarding employment

and continuing study with the providers benefiting from EU human capital funding.

Programmes funded through the Human Capital Operational Programme (POCH) and

most of the regional operational programmes with human capital investments are covered

by this approach. The government requires that at least 85% of these contractual targets

be met in areas with high population density, and 75% in those with low density. If they

are not met, the government reserves the possibility to reduce funding by 0.5 percentage

point for each percentage point away from the target, with a maximum funding cut of

10%. Rewards can also be provided if targets are exceeded.

Work should continue on implementing the framework for European Quality Assurance

in Vocational Education and Training (EQAVET). This provides guidance on quality

criteria and indicative descriptors to underpin monitoring and reporting arrangements and

common indicators to support the evaluation, monitoring and quality assurance of VET

systems and providers. Initially focused on school-level VET, work at European level is

under way to ensure that the EQAVET instruments are adjusted to reflect the growing

need of quality in continuing VET for the adult population (EQAVET, 2015[38]).

Taking into account and co-ordinating these efforts, it would be valuable to develop a

coherent monitoring and evaluation system that includes a set of performance indicators

reflecting Portugal’s policy objectives for the adult-learning system.

Interactions with multiple stakeholders during the project revealed a range of views on

the goals of adult learning. The choice of performance indicators depends on the

theoretical framework used and what is considered “success” in adult learning.4

Performance indicators should thus help take the diversity of objectives of adult learning

into account. They should also help measure the progress of learners rather than only



outcomes, as these can be heavily influenced by the socio-economic background of

participants, as was noted in previous research on improving school-level evaluations

(Santiago et al., 2012[39]).

To assist in clarifying relationships between several components of the adult-learning

system, a framework was produced as part of this project, and is presented in Annex B.

For each component of this framework, possible indicators are provided that can help

measure how well the system works at various stages. A set of potential key performance

indicators is suggested, based on international examples and data available in Portugal.

The result of this exploratory work on a draft framework for adults showed that:

Both quantitative and qualitative approaches are required to assess the quality of

the adult-learning system, including inputs, processes and outcomes. Many inputs

and processes (e.g. the quality of adult trainers, governance capabilities or the

types of learning activities and setting in which they are delivered) matter for

producing good outcomes, but often can only be assessed qualitatively. Outcomes

should be quantified wherever possible to help evaluate the impact of private and

public investments. To help communicate the outcomes to the public, a small

subset of indicators can be helpful.

The data collected in Portugal on adult learning are extensive, but is not sufficient

to clearly outline the outcomes of learning or in guiding the improvement of the

system. Some of the administrative data collected about learners, providers and

processes may not be needed for all providers and/or on a frequent basis.

Priorities should include i) refocusing the collection of data on inputs and

processes on those that matter the most for producing good outcomes, and

ii) collecting and disseminating outcomes and impact data (e.g. the value added

of learning programmes). To complement such an approach, more effective

quality-assurance mechanisms would be necessary (see next section).

Several countries have attempted to measure the outcomes of education and training

programmes. The province of Ontario, Canada, provides an interesting example with

respect to measuring key outcomes of formal adult education systematically. Its 24 public

colleges of applied arts and science are roughly equivalent to Portugal’s polytechnics.

These provide programmes at various levels, ranging from essential literacy and

numeracy to post-secondary degrees in specific applied areas of studies, and are required

to report on a simple set of key performance indicators (KPIs) made available publicly

(see Box 3.11).



Box 3.11. Key Performance Indicators in the Ontario (Canada) college system

Since 1998, the Ontario government has required that colleges, i.e. post-secondary,

technical or applied institutions, conduct surveys measuring the satisfaction of students,

recent graduates and employers, as well as graduation and employment rates of one- to

four-year courses. The data are compiled and analysed by an independent research

company, and released to the public as a small set of KPIs at the institutional level.

The KPIs include: i) average employment rates six months after graduation; ii) average

graduation rates, following a reasonable intermission; iii) a ranked measure (satisfied,

neither satisfied nor unsatisfied, unsatisfied) of students’ satisfaction regarding a) the

usefulness to the future of the knowledge and skills acquired in studies, b) the quality of

the learning experience, c) the quality of the services provided and d) the quality of the

available facilities and resources; iv) a ranked measure of graduates’ satisfaction six

months after completion; and v) a ranked measure of the satisfaction of employers that

hired graduates from the previous school year.

These indicators are not meant to rank the institutions, and do not allow for differences in

the skill levels of students at time of admission, their size, the duration and fields of the

courses offered, or the conditions in local labour markets. Still, they provide objective

and subjective information on outcomes that is useful for informing the choices of

prospective students, policy makers and the institutions themselves, and improves

transparency and accountability.

Source: Colleges Ontario (2018), available at www.collegesontario.org.

With respect to employer-sponsored training and informal learning, the definition of

learning outcomes and measurement of these outcomes is particularly important.

In Portugal, efforts are under way to recognise non-formal learning undertaken by youth,

as a way to keep young people, including drop-outs, engaged in learning. The approach

used by the Youth Pass (Passe Jovem) involves an individualised process of defining

relevant learning outcomes between the young learner and the provider, often services of

the Portuguese Youth and Sports Institute (Instituto Português do Desporto e Juventude,

or IPDJ) or youth associations. Training guidelines are available for these associations to

help with defining learning outcomes and recognising the skills acquired.

In countries that have well-developed employer-sponsored learning, like Norway, efforts

are underway to reduce the distinction between formal and informal learning. Employer

associations are working with employers to assist them in formulating their needs in

terms of learning outcomes that can be assessed and recognised. This is expected to help

increase the quality and value of employer-sponsored learning (see Box 5.5 in Chapter 5).

Portugal could improve quality assurance

Research on the impact of quality-assurance schemes on raising participation is limited,

but the absence or inadequacy of such frameworks may undermine trust in the system.

For example, some stakeholders consulted during the project expressed doubts regarding

the consistency of programme quality, across the country, fields of study and providers.

Providers working within the National Catalogue of Qualifications (Catálogo Nacional

de Qualificações, or CNQ) are regulated by their respective overseeing ministry



(e.g. schools by the Ministry of Education, IEFP centres by Ministry of Labour, Solidarity

and Social Security). All other public and private providers working outside the CNQ

must apply to a division of the Ministry of Labour, Solidarity and Social Security

(Ministério do Trabalho, Solidariedade e Segurança Social, or MTSSS) if they wish

deliver recognised training, obtain state or EU funding, or deliver training in regulated

professions. These different processes and the involvement of several actors in assessing

quality increase the risk of inconsistencies.

In particular, stakeholders raised the lack of capacity and resources of institutions

conducting quality assurance as an obstacle to improvement. They doubted, for example,

the capacity of DGERT, which oversees a diverse array of providers and several fields of

education, to undertake quality-assurance processes other than only reviewing documents

submitted by applicants. DGERT data for 2011 to May 2017 shows that 93 audits took

place. This seems low, given that 2 360 providers were certified during this period, which

represents over 85% of all applicants.

As some stakeholders noted during the project, utilising risk-based audit practices may

help to better focus resources and more effectively identify cases where quality needs

improvement. Implemented in the United Kingdom’s higher education system, such

audits focus on institutions where challenges have already been identified, rather than

using a broad-based approach (Department for Business Innovation & Skills, 2012[40]). In

Portugal, adult-learning audits could be targeted based on results from the set of key

performance indicators discussed earlier. More broadly, some countries leverage their

regular collection of data on adult learning, to take corrective action where needed. In the

Netherlands, successive Action Plans on Adult Literacy have been designed using data

collected through the monitoring process, to ensure that policies both respond to the

educational needs of low-skilled adults and effectively reach migrants and minorities

(European Commission, 2015, p. 72[19]).

Hiring and training practices need to focus on equipping staff with the right skills

As in other levels of education, and despite limited direct evidence in the area of adult

learning, quality teaching is expected to have a significant impact on outcomes (European

Commission, 2015[19]). In Europe, many countries require their adult-learning

professionals to have the same qualification requirements as teachers in the system of

initial education and training. However, a few countries, such as Norway or Slovenia,

require that they complete modules on teaching adult learners (Eurydice/European

Commission, 2011[41]).

In 2011, Portugal introduced a requirement for all adult-learning professionals operating

within the National Qualifications System to obtain a Certificate of Pedagogical Skills,

with exceptions for experienced staff in companies who serve as supervisors for on-the-

job learning, university professors and all those who have academic qualifications for

teaching. For comparison, of countries responding to UNESCO’s latest report on adult

education and training, 53 reported requiring specific qualifications for adult-learning

professionals in all cases, 62 reported having such requirements in some cases only, while

20 responded they had no such requirements and another 62 did not respond to this

question (UNESCO, 2016[42]). Further investigation is needed to assess whether such an

approach produces positive results, such as raising the skills of trainers and improving the

consistency of quality of teaching across a country.

Other factors also influence Portugal’s ability to attract, retain and train adult-learning

professionals, including the stability of their working conditions. In Portugal, some



stakeholders highlighted the unintended impact of the rapid expansion of the adult-

learning system, noting that the “massification” of RVCC and growth in the number of

courses such as EFA in the previous decade had required massive recruitment and left

little time for adequate selection and training of adult-learning professionals. This

expansion also led, according to some stakeholders, to reducing the use of learning

appropriate to the needs of adults, as adult-learning professionals focused on providing

access to all prospective learners at the expense of individualised support.

Budget cuts during 2012-13 were also reported to leave many workers in the field without

an opportunity to use their qualifications and experience, and for some to leave the

profession altogether. This may make it difficult in future to attract the large number of

high-quality adult-learning professionals needed to deliver the Qualifica Programme.

This suggests that improving the quality of instructors and adult-learning service

providers will require some combination of: better hiring and training procedures,

sufficient earnings and employment stability to attract talent, and access to relevant

lifelong training opportunities for staff. Box 3.12 provides examples of strategies used in

other countries to safeguard access to sufficient numbers of qualified adult-learning staff.

Box 3.12. Raising the quality of teaching: Country examples

Austria uses a quality-assurance approach requiring adult-learning providers to

demonstrate that they have qualified staff as part of the accreditation process. This

conditions access to public funding and when inspections are conducted

(European Commission, 2015, p. 76[19]).

In the United States, organisations like the National Council for Adult Learning

(NCAL), a national public charity, supports research and peer learning efforts to

identify how to strengthen the professional development of the adult-learning

professionals. For example, in 2016, the NCAL identified six priorities for

creating an effective professional development system for adult educators,

including i) consulting with providers, iii) defining what constitutes an effective

adult education teacher, iii) identifying and adopting/adapting good training

models and approaches, iv) building professional development explicitly into

adult education planning, v) improving data collection for professional

development and vi) developing clearer communications. Seminars were then

held with practitioners to identify concrete ways to incorporate these priorities

into practice (Corley, 2016[43])

More broadly, if adult learning is considered to be a mainstream component of the

adult and learning system, adult learning may become a more attractive

profession. Denmark is an example of a country that has made adult learning a

leading policy priority, stable over time and increasingly co-financed by both the

public and private sector, specifically by fees from learners (Desjardins, 2017[3]).



Recommendations



Assess the current provision of adult-learning programmes and identify where

gaps need to be filled to raise the participation and improve the outcomes of key

groups, in particular:

o For low-educated adults, NEETs and the long-term unemployed: Ensure

the availability of flexible opportunities that combine basic skills

upgrading and work-relevant learning, in formats suitable to adults.

o For employers, especially SMEs and micro-enterprises: Monitor existing

programmes to ensure they reach a critical mass of SMEs and provide

relevant training.

o For young and medium-skilled adults: ensure that VET provision at both

secondary and post-secondary levels is of sufficient quantity and quality,

taking into account i) the urgent needs of certain economic sectors for

skilled professionals (e.g. tourism), ii) the large number of young

NEETs, and iii) the growing number of graduates from the vocational

stream of secondary education (cursos profissionais) who may lack

pathways to labour-market learning opportunities at the post-secondary

level.

Improve the quality of existing adult-learning programmes by filling gaps in

provision and by funding models that demonstrate good results:

o Leverage EU funding (e.g. develop Upskilling Pathways models) and

provide targeted government funding to develop or scale up programmes

that have shown positive results. Also pursue private funding through co-

financing arrangement (see Recommendation 9 in Chapter 5).

o Establish clear criteria for allocating funding, so that adult-learning

programmes are designed or redesigned in a way that reflects good

practice. This can be implemented when new measures are developed, or

by including such criteria in calls for providers to design and deliver new

programmes. These criteria may include a combination of the following,

identified as good practice based on international evidence:

1. Clear objectives and relevant performance-measurement approaches and

indicators.

2. Strong justification for creating a new programme rather than using existing

programmes (e.g. demonstrate existing gaps in the system, growing demand from

employers and/or individuals that cannot be met with the current supply, etc.).

3. Relevant content: as currently done in Portugal, combine provision of

foundational and transversal skills training with technical/job relevant skills

training. This includes expanding work-based learning opportunities,

collaboration between different training providers (e.g. schools and employers) in

the delivery of training, and involving local stakeholders in the design of adult-

learning programmes, to ensure that they are relevant in the labour market.



4. For example, combine provision of foundational and transversal skills training

with technical/job relevant skills training, expanding work-based learning

opportunities and involving local stakeholders in the design of adult-learning

programmes, to ensure that they are relevant in the labour market.

5. Effective and efficient delivery: Ensure all learning opportunities allow for

flexible and modular approaches to address adults’ time constraints and their

potential need to stop and/or resume training at different stages; encourage co-

location of services for more efficient delivery, etc.

6. Transferability: Pathways and recognition mechanisms must allow movement

and progression between new and existing programmes (see Recommendation 5

for more details).

7. Provide targeted financial and non-financial support to improve the access and

success of disadvantaged groups. Also, ensure adequacy of broader support at the

local level (e.g. transport, child care) as a key enabling condition for the

participation and success of learners.


Assess the adult-learning delivery network in its entirety, to identify gaps and

duplication, and adapt provision to the population density, client profiles and

economic needs. This should involve an in-depth evaluation of the network’s

strengths and weaknesses, and areas where it can be more efficient and effective,

which should be done in addition to the existing annual exercises conducted to

plan for the provision of learning opportunities.

o Build on approaches used by ANQEP to select Qualifica Centres, to

ensure that the scale of provision reflects local population density,

different client profiles and economic context.

o Differentiate training provision based on the strengths of providers, and

improve complementarities and synergies at the local level (e.g. by

bringing together multi-disciplinary teams).

For example, providers with strong associations with local

companies could assume a greater role in i) learning options that

provide labour-market relevant skills, ii) improving access to

work-based learning, and iii) facilitating the employment of

learners after completion. Providers with a good track record in

basic skills training should play a key role in delivering such

training. Partnerships between these different providers are

critical for ensuring that learners can benefit from the best-

quality learning both in basic skills and in skills that are relevant

in the labour market.

Efforts should meanwhile be made to maintain accessibility, for

example by leveraging online learning options and providing

supports for transportation.

o Consider strengthening the role of polytechnics in providing adults with

high-quality training, including both labour-market relevant and basic

skills training.



o Ensure the offer of VET for both youth and adults is coherent and easy to

understand for users.

Improve the assessment of clients’ needs and matching learners to the right

opportunities, to improve retention and completion:

o Build on the Qualifica Passport and international best practices to

develop advanced ways of determining user needs.

o Ensure adequate training of adult-learning staff (see Recommendation 7).

Develop or strengthen pathways between programmes.

o These include pathways between different programmes, to allow low-

skilled adults to progress between different programmes as they gain

higher levels of skills.

For example, this can include pathways allowing progress from basic

skills provision and secondary school level, e.g. education and training

courses for adults (Educação e Formação de Adultos, or EFA), and

certified modular training (Formação Modular Certificada, or FMC)

onward to post-secondary, non-tertiary options, e.g. technical

specialisation post-secondary non-tertiary vocational courses (Cursos de

Especialização Tecnológica, or CET) and then to tertiary education,

e.g. short-cycle tertiary education courses (Cursos Técnicos Superiores

Profissionais, or CTeSP) and bachelor-level education.

6. Strengthen quality assurance including by developing a performance-

monitoring and evaluation system and a set of key performance indicators.

This recommendation builds on Portugal’s existing work implementing the EQAVET

framework and the new system to monitor the activities of the Qualifica Centres. It

includes the following specific actions:

Establish a performance-monitoring and evaluation framework for the entire

adult-learning system, to articulate objectives, inputs, processes, outputs and

outcomes.

o Select a specific organisation with adequate resources to lead this work,

ensuring that it complements and does not duplicate existing work. A

skills council may, for example, lead this type of work (see

Recommendation 7).

o Based on international best practice, including EQAVET work, develop a

limited set of key performance indicators that can be monitored publicly.

Include: i) core indicators common to all programmes and

relevant to the adult-learning system (see Annex B for concrete

examples), and ii) indicators tailored to specific programmes

with different goals and learner profiles.

As a condition of receipt of public funding, require regular and

comparable third-party evaluations for adult-learning

programmes, to increase understanding of their impact,

challenges and practices that work, thus allowing progress over

time.



Streamline and strengthen the quality-assurance system:

o Simplify the reporting requirements required of service providers by:

co-ordinating data collection across ministries (e.g. single

request)

requiring submission through a single and simple digital system

reducing the data requirements, focusing only on indicators

relevant to the performance-monitoring and evaluation system.

o Shift to a risk-based auditing approach: Dedicate resources for more

frequent on-site audits in institutions that perform less well, based on the

results of the performance-monitoring and evaluation system.

o Reduce the number of institutions in charge of quality assurance for adult

learning, or establish requirements to align practices across institutions.

o Provide appropriate financial and human resources for institutions in

charge of quality assurance.

Ensure that adult-learning professionals are available in sufficient numbers, with

the appropriate skills:

o Identify the current supply of adult-learning staff compared to anticipated

staffing needs once the ramp-up of Qualifica Programme is complete.

o Encourage effective hiring and training practices to ensure that the adult-

learning workforce has the right level and mix of skills for a variety of

clients (including employers) and needs (e.g. teaching, but also

guidance).

o Make sure ANQEP continues to develop summative and formative

evaluations of the Qualifica Centres, and extend this model to other

organisations providing career management and training. This could

involve legislative changes to allow the ANQEP to take on such role, and

require additional resources for such task.

o Engage in peer learning with countries that require certifications for

adult-learning providers, to assess the benefits and drawbacks of such

models.



Notes

2 The CTEsP grant higher education diplomas, not degrees. According to Decree-Law no.

63/2016, of 13th of September, CTEsP are registered by the Directorate-General for Higher

Education (DGES) of the Ministry of Science, Technology and Higher Education. The Agency for

the Evaluation and Accreditation of Higher Education (Agência de Avaliação e Acreditação do

Ensino Superior, or A3ES) is not responsible for quality assurance for these courses.

3 See Portaria No. 60-A/2015, of 2 March.

4 For example, econometric approaches attempt to isolate the specific impact of participation on

employment rates and wages (Oosterbeek, 2013[44]) (Buchanan, Anderson and Power, 2017[45]).

Political economy approaches outline correlations between adult learning systems characterised by

high participation rates, and macro-economic outcomes such as GDP growth or employment

(Desjardins, 2017[3]) (Buchanan, Anderson and Power, 2017[45]). Such studies suggest that adult

learning is part of a broader set of policies that all favour economic growth and social cohesion,

but the specific role of adult learning in generating these outcomes is not well understood.

Educational psychology research focuses on other indicators, emphasising the importance of

outcomes such as self-confidence, persistence and autonomous motivation for learning, as valuable

in themselves but as intermediary outcomes that can encourage improved economic and social

outcomes (Rothes, Lemos and Goncalves, 2017[46]).



References

Agência para o Desenvolvimento e Coesão, I. (2016), Relatório Anual dos Fundos da União

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4. EFFECTIVE GOVERNANCE OF ADULT LEARNING IN PORTUGAL │ 111


Chapter 4. Effective governance of adult learning in Portugal

This chapter provides an overview of the governance of Portugal’s adult-

learning system, and recommendations for improving its performance.

A strong legislative framework establishes key features of adult learning in

Portugal. However, the effectiveness of the system is limited by the fact that

several ministries share responsibilities for adult-learning policies and co-

ordination among them is uneven. The engagement of local economic and

social actors in the development adult-learning policy and programme has

also been less than optimal.

The chapter is divided into three parts. First, the current governance

landscape is discussed, including the limited co-ordination mechanisms across

ministries (horizontal co-ordination), between national government and local

authorities (vertical governance) between government and stakeholders.

Second, international examples of policies and practices to address key

challenges are described, including how contractual mechanisms and

dedicated governance structures at the national and local level can establish

clear roles and responsibilities and improve accountability for adult-learning

policies. The third part outlines the chapter’s recommendations for improving

the governance of adult learning in Portugal.

112 │ 4. EFFECTIVE GOVERNANCE OF ADULT LEARNING IN PORTUGAL



The lack of a clear “owner” of adult-learning policy was identified as an

underlying factor behind the lack of coherence in the adult-learning system.

Government efforts to engage local actors to improve collaboration and co-

ordination are seen as ad hoc, rather than systematic, and viewed as not always

sufficient to take into account the challenges encountered by stakeholders on the

ground.

While local partnerships exist, there are no incentives for the sustained

engagement of key players in these partnerships, particularly employers.

The lack of coherence and collaboration was broadly agreed upon as limiting the

effectiveness of the adult-learning system. However, there were different views

on how to address this challenge: some stakeholders noted the value of a clear

governance body in charge of adult-learning policy that can bring together all

relevant stakeholders. Others noted the importance of avoiding the duplication of

governance bodies and noted that using existing bodies would be preferable to

creating new ones.

Stronger governance and financing mechanisms could enhance the effectiveness of

adult learning

Strong governance is a condition of an effective adult-learning system. Government and

stakeholders should work together to develop adult-learning policy, which is particularly

important given the multi-dimensional nature of this policy area. Many ministries are

involved in various aspects of the adult-learning system (see Table 4.1), and much adult

learning takes place outside the formal education system, which actively involves social

partners. This diversity can generate gaps and misalignments between ministries and with

stakeholders.

Strong co-ordination is essential, on several levels: horizontal co-ordination across

ministries, vertical co-ordination between ministries and local authorities, and co-

ordination between government and stakeholder engagement in policy making. These

three types of co-ordination are vital for generating consensus on policy objectives,

facilitating implementation, and improving the longevity of policies beyond political

cycles (OECD, 2005[1]; OECD, 2010[2]).

Robust monitoring and evaluation systems are also an important basis of strong

governance, as they can generate information on the returns of adult learning and the

effectiveness of various programmes. These systems help design and implement

evidence-based policies, and assess whether the adult-learning system is meeting its

objectives (see Chapters 2 and 3 for the returns of adult learning, and of monitoring and

evaluation systems).

Countries use a variety of tools to co-ordinate policy. Box 4.1 summarises some of the

most frequently used, outlines some of their benefits and drawbacks, and identifies where

they are discussed in the report.



Box 4.1. Mechanisms for effective vertical and horizontal governance

Governments use a range of multi-level governance mechanisms, which are also relevant

to stakeholder engagement. The report’s recommendations address several of them, as

noted below.

Legal mechanisms and standard setting

Legal mechanisms (legislation, regulation, constitutional change) are one of the strongest

and most commonly used methods for multi-level governance. They can ensure clear

responsibilities and provide the necessary resources. However, legal mechanisms are

slow to adapt and may crowd out the self-initiative of different parties. For example,

legislated funding may increase dependence on transfers and limit sub-national revenue.

Standard setting is less binding than legislation, but defines the inputs, outputs and/or

outcomes required for an activity.

Contracts, agreements and pacts (see Recommendation 9)

These tools allow parties to commit either to take action or to follow guidelines that

transfer decision-making rights between them. Their advantages are that they are based

on mutual agreement, do not require legislative change and are public and transparent.

However, contracts can be costly to negotiate, implement and enforce, especially if the

parties are reluctant to give up their prerogatives or priorities. They thus require

substantive debate and agreement on common goals and benefits to all parties if they are

to be effective.

Vertical and horizontal (quasi-)integration mechanisms

These include mergers and horizontal and vertical co-operation at the sub-national level.

Co-operation can occur through inter-communal structures and joint municipal

authorities, which may be legally recognised and subsidised. They can help build critical

mass and scale for better results. A drawback of these mechanisms, mergers in particular,

is that they may obscure responsibilities or diminish locally tailored services.

Co-ordinating bodies (see Recommendations 7 and 8)

Co-ordinating bodies promote dialogue, co-operation and collaboration, build capacity,

align interests and timing, and share good practices. They can be government or non-

government groups. They are relatively straightforward to establish, and facilitate

enterprise learning and locally tailored solutions. However, if these bodies are to have an

effect on outcomes, binding or accountability mechanisms are important.

Performance measurement (see Recommendation 6)

Performance measurement utilises indicators to measure the inputs, outputs and outcomes

of a public service. Performance measurement can promote learning, stimulate effort in

critical areas, improve transparency and accountability, and help reinforce other

governance mechanisms. However, it is costly to develop and maintain and may affect

behaviour and outcomes in unexpected ways. Performance measurement should be

collaboratively designed, express clear, comprehensive objectives and be built with end

users in mind.

Source: (Charbit and Michalun, 2009[3])



The legislative framework governing adult learning is comprehensive, but

governance mechanisms could be improved

The legislative framework is comprehensive, but it has drawbacks

Since the early 2000s, and especially since the introduction of the National System of

Qualifications (SNQ), Portugal has developed a body of legislation that establishes a

comprehensive adult-learning system. Legislation defines some of the key features of the

adult-learning system, including the roles and responsibilities of several actors in

implementing the system.

Examples include: the role of the National Agency for Qualifications and Vocational

Education and Training (ANQEP) and Sectoral Council for Qualifications (CSQ) in

regularly updating the National Catalogue of Qualifications (Portaria No. 781/2009, of

23 July), the role of government services in certifying the training providers to allow

them to operate within the National System of Qualifications (SNQ) (Portaria No.

208/2013, of 26 June), or the creation and mandates of the Qualifica Centres (Portaria No.

232/2016, of 29 August).

The SNQ also includes practical instruments for designing and developing adult-learning

programmes and services (see Chapter 3) that orient the adult-learning system towards

achieving certain objectives. For instance, the establishment in 2017 of the national credit

system for vocational education and training (VET) and the creation of the Qualifica

Passport (Portaria No 47/2017, of 1 February), is intended to make the adult-learning

system in Portugal more user-centred, in an effort to promote both modular and labour-

market-relevant training, and training that responds to users’ specific needs.

In addition, in the public administration, new legislation requires the public

administration to make training opportunities available to all workers (Decreto-Lei

No. 86-A/2016, of 29 December). The Directorate-General for the Qualifications of

Public Servants (Direção-Geral da Qualificação dos Trabalhadores em Funções

Públicas – INA) is responsible for establishing a new model to co-ordinate and improve

professional training in the public administration, as described in Chapter 2 (box 2.7).

This legislation involves important governance aspects, as it creates two new bodies with

consultative and co-ordination roles to strengthen professional training in the public

service. These are the General Council for Professional Training (Conselho Geral de

Formação Profissional, or CGFP) and the Commission for Co-ordinating Vocational

Education and Training (Comissão de Coordenação da Formação Profissional, or

CCFP). The CGFP is presided over by the minister in charge of public administration,

and includes the heads of relevant public services and agencies. Its role is to advise

government in the definition and ongoing improvement of professional training in the

civil service. The CCFP has a co-ordinating role and involves the heads of services

responsible for training in the public service at the national, regional and local levels.

Despite this well-developed legislative framework, stakeholders reported a number of

limitations in implementing these policies, and in making the different parts of the system

work together. The focus of government on supporting the exchange of good practices

and co-ordination between ministries, between ministries and local authorities, and

among local actors, may take time to translate into practice. For example, the

development of partnerships with other local entities has been part of the mandate of the

Qualifica Centres since 2016, and is supported by the ANQEP’s guidance (Portaria

No. 232/2016, of 29 August).



However, the nine Qualifica Centres that reported good practices over the course of the

project suggested that such practices were mostly based on their own initiative, through

the creation of ad hoc partnerships with civil society actors (see Box 4.7 for these good

practices).

In all countries and policy areas, there are advantages and disadvantages of using

different governance instruments, as noted in Box 4.1. In Portugal, the unintended

consequences of using legislative and regulatory mechanisms as the main instruments to

shape the adult-learning system were particularly evident. Legislation was often seen as

lacking the flexibility to respond to fast-changing stakeholder needs. Several Portuguese

employers interviewed during the project noted that the bureaucratic process to update the

National Catalogue of Qualifications sometimes limited its responsiveness to labour-

market needs. While some employer representatives recognised that the updating of the

Catalogue requires more commitment on their part, they reported having little time to

engage in this process. Instead, several employers advocated for autonomously planning

and managing adult-learning opportunities. For some adult-learning providers

interviewed during the project, the national-level approach to managing financial and

human resources management was also reported as a key obstacle to effective provision,

suggesting that vertical co-ordination mechanisms were not sufficient to adapt legislation

and national-level policies to local realities.

Another side effect of a strong legislative framework was the perception that the legal

framework sometimes results in a lack of initiative among civil society actors in the

adult-learning system. Several stakeholders commented on a frequent over-reliance on

ministry directives, with little interest in innovative practices not specifically set or

required in law. However, this issue does not appear to be specific to adult learning, but

to be related to the historical relationship between a centralised state and a civil society

with a limited role in policy. This perception was not unanimous, however: other

stakeholders mentioned significant local-level activity, as will be discussed later in the

chapter.

Co-ordination mechanisms can play an important role in complementing the legislative

framework. It can also provide flexibility to implement policy according to local needs,

and greater clarity on roles, responsibilities and accountability.

Limited governance capacity affects government policy broadly in Portugal

In Portugal, across policy areas, governance arrangements need improvement. In 2017,

Portugal ranked relatively low on an exercise assessing governance performance across

41 countries along two dimensions: executive capacity and executive accountability

(Bertelsmann Stiftung, 2017[4]). Figure 4.1 illustrates these results.

Despite improvement in executive capacity, which refers to how well the government is

able to develop and implement effective policies, Portugal remains in the middle ranks of

the countries assessed (at No. 23 out of 41). A key finding in this area is that public

bodies that could play a more strategic role in assessing the strength of proposed policies,

such as the Prime Minister’s Office, have a limited policy role. In addition, regulatory

impact assessments are rarely used, despite the government’s focus on maintaining fiscal

balance.

Executive accountability refers to the extent to which government involves non-

governmental actors in policy making. Citizens and intermediary organisations

(e.g. media, political parties, etc.) are informed of policies, and the capacity of the



legislature to hold the executive branch accountable. On this indicator, Portugal ranks low

(No. 34 out of 41); parliament lacks the resources to effectively use its formal powers,

and civil society still remains weak, and non-economic actors have limited influence on

government.

Figure 4.1. Governance performance

Note: for exact definitions, see www.sgi-network.org.

Source: The Bertelsmann Foundation, Sustainable Governance indicators (SGI), 2017.


Horizontal co-ordination is needed to improve the coherence of adult-learning

policy

Horizontal co-ordination refers to how government officials collaborate on policy making

across ministries.

The Portuguese government has already begun to recognise the inter-ministerial nature of

skills issues, in several ways. A key example was the creation, in the late 1990s, of an

agency jointly overseen by the Ministry of Education and the Ministry of Labour,

Solidarity and Social Security (Ministério do Trabalho, Solidariedade e Segurança

Social, or MTSSS), to develop adult education and prior learning recognition. The New

Opportunities Initiative led to the inclusion of a focus on vocational education in 2005.

Since 2012, this agency has been the National Agency for Qualification and Vocational

Education (Agência Nacional para a Qualificação e o Ensino Profissional, Instituto

Publico, or ANQEP). It is mandated to co-ordinate and implement VET policies for

young people and adults, and to develop and manage Portugal’s extensive national system

of prior learning recognition and certification (Sistema Reconhecimento, Validação e

Certificação de Competências, or RVCC). The ANQEP was widely recognised by key

stakeholders during the project as a main player in adult learning. Many stakeholders

advocated for an expansion of its mandate to lead work on this report’s recommendations

(see Annex C).

Another promising example are the inter-ministerial approaches taken by the government

to develop broad policies. For example, for both the Qualifica Programme and the

InCode2030 strategy, multiple ministries were consulted at the stage of policy

development. In addition, some strategies involve implementation by various ministries.

For instance, the InCode2030 strategy is led by the Ministry of Science, Technology and

Higher Education (Ministério da Ciência, Tecnologia e Ensino Superior, or MCTES), but

0

2

4

6

8 Strategic Capacity

InterministerialCoordination

Evidence-basedInstruments

SocietalConsultation

PolicyCommunication

Implementation

Adaptability

OrganizationalReform

A. Executive capacity

0

2

4

6

8 Media

LegislativeActors'

Resources

Citizens'ParticipatoryCompetence

Parties andInterest

Associations

B. Executive accountability

Portugal OECD – average

http://www.sgi-network.org/

http://dx.doi.org/10.1787/888933711940



several ministries play a role in implementation, for example the Ministry of Education

(responsible for the education axis of the strategy) and the National Institute of

Administration (INA), which is responsible for the part of the strategy applicable to the

public administration. Such inter-ministerial collaboration shows promise and should be

pursued. However, it could be helpful to establish ongoing governance mechanisms to

align the initiatives taken by all ministries with a role in adult learning, from policy

development to design, implementation and performance monitoring. As noted in

Table 4.1, at least seven ministries are active in adult learning, with a wide range of

initiatives. Some are part of comprehensive strategies, while others are discrete

initiatives.

It would be helpful to establish regular collaboration mechanisms between the ministries

responsible for designing adult-learning opportunities and the people responsible for

evaluating demand in the labour market.

Such mechanisms could promote policy complementarities, the mutually reinforcing

effects that different policies can have on a given outcome. In economic development

policy for instance, implementing innovation, industrial and trade policies simultaneously

is more effective at increasing the competitiveness of a region or country than initiating

any of these policies alone, or at different times (De Macedo and Martins, 2008[5]; OECD,

2017[6]).

In the case of skills, it is important to ensure that education policies intended to raise the

educational attainment of the population are supported by economic development policies

to stimulate productivity and innovation, such as the Indústria 4.0 programmes in several

European countries (including Portugal). Demand-side policies are critical for boosting

the demand for a higher level of skills and increasing the economy’s capacity to absorb

highly skilled individuals, helping to limit emigration. The premium for higher education

in Portugal is still among the highest in the OECD. However, there are signs that the

demand and rewards for skills in the labour market are too low, as suggested by the high

level of emigration of the highly skilled by comparison with those of other EU countries.

In other words, without such complementarities, the premium for education might

decrease over time, wasting private and public resources, risking an erosion of skills

among the highly skilled and crowding the low-skilled out of the labour market.



Table 4.1. Shared responsibilities in adult learning in Portugal: Initiatives of seven ministries

Roles and responsibilities Supply of adult-learning opportunities

(skills development)

Demand for skills (skills use)

Funding of adult learning

Governance of adult learning

Ministry of Education

(Ministério da Educação, or ME)

General education policy and delivery

For adults, provision of education and training opportunities, including during evenings (e.g. Educação e Formação de Adultos and Ensino Recorrente)

Qualifica Programme (includes involvement of MTSSS)

Ministry of Labour, Solidarity and Social Security

(Ministério do Trabalho, Solidariedade e Segurança Social, or MTSSS)

Public Employment and Vocational Training Service (IEFP) and active labour-market policies (ALMPs)

Qualifica Programme (includes involvement of ME)

Certifies training providers

Close relationships with employers and unions

National Agency for Qualification and Vocational Education (Agência Nacional para a Qualificação e o Ensino Profissional, or ANQEP, Public Institute (Instituto Público, or I.P.)

Joint agency of ME, MTSSS, and MEcon

Co-ordinates and implements VET policies for young people and adults

Develop and manage the system of competency recognition, validation and certification

National responsibility for the system of skills assessment and anticipation

Co-ordinating Council of the System for the Anticipation of Skills Needs

Ministry of Science, Technology and Higher Education (Ministério da Ciência, Tecnologia e Ensino Superior, or MCTES)

Regulatory role to create and modify public higher education institutions and to ensure that private higher education entities comply with legal requirements applicable to this sector

Co-ordinates the InCode Strategy to raise digital competencies

Ministry of Economy (Ministério da Economia, or Mecon)

and

Agency for Competitiveness and Innovation (Agência para a Competitividade e Inovação, I.P., or IAPMEI)

& Tourism Portugal, I.P.

Indústria 4.0 (human capital development measures)

Training for employers (e.g. Action Training)

Tourism Portugal: qualification and training of human resources for the tourism sector, by designing and implementing initial and continuing training courses for young people and adults, including Tourism Schools

Indústria 4.0 (measures to strengthen productivity and innovation)

Training for employers (e.g. Action Training)

Ministry of Planning and Infrastructure (Ministério do Planeamento e das Infraestruturas, or MPI)

and Agency for Cohesion and Development (Agência para o Desenvolvimento e Coesão, I.P., or AD&C)

Co-ordinates National Programme of Reforms (funding and targets)

EU structural funds

Ministry of Finance (Ministério das Finanças, or MF)

Oversees the Directorate-General for the Qualification of Public Servants (INA)

Financial incentives to businesses

Ministry of the Presidency and Administrative Modernisation (Ministério da Presidência e da Modernização Administrativa, or MPMA) and Administrative Modernisation Agency (AMA)

AMA: manages a network of physical Citizens’ Spots, assisting citizens with limited digital proficiency to use eServices

Promotes digital citizenship

AMA: responsible for government eServices development



Improving vertical co-ordination between national and local levels of

government would help align national policy with local needs

There are few vertical co-ordination mechanisms in Portugal for adult learning. Policies

are developed at the national level and then implemented by local providers, and

intermediary bodies play only a limited role, if at all. This is partly a result of the

centralised nature of the state: Portugal has two main levels of government, the central

government and the 308 municipalities. Two other types of administrative structures,

recently created, also exist, but they play a limited role in education and skills (Box 4.2).

This structure has the advantage of simplicity, but it entails certain risks. During the

project, stakeholders noted the recurring issue of a misalignment between national policy

and local needs.

Box 4.2. Territorial governance in Portugal: CCDRs and CIMs

Five Commissions for Co-ordination and Regional Development (Comissões de

Coordenação e Desenvolvimento Regional, or CCDR) were created in 2003 in

Continental Portugal to replace previous administrative bodies. The CCDRs are

deconcentrated services of the national administration. Their mandate is local

development, both economic and environmental. The CCDRs were not frequently

mentioned during the project, and have no specific roles in education and skills policy.

The Intermunicipal Communities (Comunidades Intermunicipais, or CIMs), formerly

informal groupings of municipalities, were formally recognised in 2013, and were granted

legislative authority to focus on local economic development. Some have been

participating on a pilot basis rolling out the system to assess and anticipate skills needs

(Sistema de Antecipação de Necessidades de Qualificação, or SANQ), in partnership with

the ANQEP. According to stakeholders, the involvement of CIMs in planning learning

opportunities to meet local economic needs varies widely, depending on their individual

capacity; 12 CIMs are already involved in SANQ, in co-operation with ANQEP.

Portugal has a tradition of centralised policy making in education policy, although

significant changes have been introduced in recent years. For example, “autonomy

contracts” provide schools that sign such contracts greater flexibility in areas such as

pedagogical organisation, human resources, curriculum organisation, school social

support and financial management. The number of schools with autonomy contracts rose

from 22 schools in 2010 to 212 in 2013, accounting for 26% of the school clusters, which

are groupings of several schools (OECD, 2014[7]). Higher education institutions in

Portugal have a considerable degree of autonomy (OECD, 2014[7]), but in practice,

however, fiscal constraints imposed under the economic adjustment programme have

limited their freedom of manoeuvre.

In adult learning, however, providers operate within legislative requirements that

constrain their ability to adapt decisions to the local context. Examples of this situation

were noted during the project: first, providers are required to obtain ministry approval for

in-year human resources decisions, such as renewing staff contracts beyond the initial

duration, which can lead to gaps in service. Second, the minimum number of students

required to open an adult-learning course was reported as being the same for the country,

despite widely different population density and economic contexts. It should be noted,



however, that the legislation allows for exceptions to this rule, if they are justified and

authorised by the relevant regional services.

Stakeholder engagement in adult-learning policy is not systematic

In recognition of the low involvement of civil society in policy making, Portugal has

made strides towards a policy of open government, recently launching several initiatives

that will help build a whole-of-society approach to policy development and

implementation. Examples include, in 2017, a national-level participatory budget, where

citizens were invited to decide how to invest EUR 3 million in projects related to culture,

science, adult education and training, and agriculture. This pilot project was the first at

the national level, drawing on experience with these types of mechanisms at the

municipal level.

Other initiatives also demonstrate Portugal’s focus on opening the policy-making process

to external stakeholders, such as the active involvement of the private sector in the design

of Indústria 4.0 in Portugal. This strategy was developed using a bottom-up approach. It

involved participation and input from companies operating in the Portuguese market,

trade associations and public organisation, and included interviews, workshops and

auditions. The process involved over 400 people from more than 120 entities, such as

multinationals, sector leaders, start-ups, associations, technology providers and centres

and government agencies. Participants were primarily from the four priority industry

sectors, Automotive, Fashion and Retail, Agro-industry and Tourism. The sectors were

selected because of their economic contribution, relevance among small and medium

enterprises (SMEs) and exposure to digital transformation.

However, for adult learning, the co-ordination mechanisms between government and civil

society to support policy development remain limited. While many advisory bodies could

play a greater role in adult learning, for example because they deal with education or

labour-market issues, adult learning is not part of their core mandate.

This is the case both for formal advisory bodies that government is mandated to consult,

but also for education and training co-ordinating bodies that could have valuable input on

education and training opportunities for adults:

Examples of formal advisory bodies are the National Council for Education

(Conselho Nacional de Educação, or CNEDU) and the Economic and Social

Council (Conselho Económico e Social, or CES). The CNEDU has a large

stakeholder membership (political parties represented in the National Assembly,

unions, employer associations, government, academic societies, educational

institutions, etc.). It is an important voice in education debates but has mostly

focused on youth education policy.

The CES serves as a constitutional body for consultation and social concertation.

Within the CES, a Standing Committee on Social Concertation (Comissão

Permanente de Concertação Social, CPCS), brings together the government,

employer associations and trade unions (Bertelsmann Stiftung, 2017[4]).

However, the CES has only marginally discussed adult-learning issues to date.

Formal education providers, from the primary to the tertiary level, have co-

ordinating bodies with advisory functions. For example, the Council of Schools

(Conselho das Escolas) advises the Ministry of Education on education policy

from pre-school to upper secondary. At the tertiary level, the Council of Rectors

of Portuguese Universities (Conselho dos Reitores das Universidades



Portuguesas), the Co-ordinating Council for Polytechnic Institutes (Conselho

Coordenador dos Institutos Politécnicos), the Portuguese Association of Private

Higher Education (Associação Portuguesa de Ensino Superior Privado), and the

new Co-ordinating Council of Higher Education (Conselho Coordenador do

Ensino Superior) all provide advice to government on higher education issues.

However, none of these bodies appear to have a focus on adult-learning issues.

By contrast, civil society organisations promoting adult learning do not have regular co-

ordination channels for working with government. Organisations such as the Portuguese

Association for the Education and Training of Adults (APEFA) and the Portuguese

Association for Lifelong Learning (APCEP) pursue research and convene actors

specialised in adult learning with the aim of influencing public policy. While they are

consulted by government, and for instance, invited to workshops during the project, there

are no regular channels for government to engage stakeholders with expertise in adult

learning. Establishing such channels could provide government with more insight into the

needs of adult learners and help identify best practices, to support a more effective and

efficient system.

Engagement with employers at the national level in adult learning is limited. The

Ministry of Education does not have direct relationships with employers, while ministries

that do, such as the Ministry of Economy, is not involved in defining and implementing

adult learning policy. Another issue is the approach currently used to involve employers

in adult-learning. For example, employers are represented on organisations such as the

ANQEP Council and the Sectoral Qualifications Councils (Conselhos Setoriais para a

Qualificação, or CSQ) in charge of proposing and approving changes to the National

Catalogue of Qualifications. However, some stakeholders questioned the extent to which

the CSQs were effectively used as a forum to discuss and plan skills supply in alignment

with labour-market needs, despite their high level of activity. This suggests there may still

be room to better use these existing co-ordination structures.

Further, the degree to which employers are involved at the policy level (i.e. broad

objectives, responses needed, appropriate targets, etc.) and in the design of adult-learning

programmes is unclear. Several stakeholders noted the difficulty of bringing employers to

the table to discuss the question of skills, which they attributed to the employers’ lack of

time and the perception of many that skills investments are of limited value to their

business, as discussed in Chapter 2.

Horizontal co-ordination at the local level can be further leveraged

Stakeholders reported a rich network of community-based associations, some of which

play an important, multifaceted role in supporting adult learning among disadvantaged

groups.

These organisations were reported to work in networks, referring clients, based on their

identified needs, to other organisations better able to serve them. National policy

encourages collaboration to some extent. Entities that apply to be operated and funded as

a Qualifica Centre have to demonstrate that they work in partnership with other local

agents as part of the selection criteria. Collaboration is also implicitly encouraged by the

result targets monitored by the ANQEP. In many areas, achieving those results may not

be possible without local partnerships.

However, stakeholders reported that collaboration is often ad hoc or informal. The

frequency and effectiveness of meetings was reported to depend on such factors as



personal relationships between staff in key providers such as Qualifica or Public

Employment Service (Instituto de Emprego e Formação Profissional, or IEFP) Centres.

Furthermore, stakeholders reported that competition for clients among providers, both

public and private, is common. This suggests that more explicit incentives or targets

related to local-level collaboration may be warranted. More systematic collaboration at

the local level could use the dense network of local providers to serve more adult learners

and employers, by leveraging the strengths of various types of providers, as discussed in

Chapter 3.

Practices to improve the governance of the adult-learning system

This section outlines a variety of country examples of co-ordination mechanisms, both

horizontally across government, vertically between levels of government and between

government and stakeholders.

Information is often lacking on which types of mechanisms work best, as is likely highly

contingent on a country’s institutional set-up and other contextual factors. However, these

examples illustrate the need for co-ordinating policy, and for a wide array of approaches.

Many of these mechanisms are applicable to multiple policy areas, but they are

particularly relevant in cases where responsibilities are shared or siloed, such as adult

learning. This makes such mechanisms critical for policy effectiveness.

Organisations dedicated to adult skills can help align policy between ministries

In OECD countries, mechanisms to support horizontal co-ordination between different

ministries can be more or less formal, temporary or permanent, and broad or narrow in

scope. They offer useful examples applicable to policy areas requiring strong inter-

ministerial collaboration, such as adult learning.

In the United Kingdom, the Cabinet Office recently developed a Code of Good

Practice for partnerships between government departments and public bodies, and

conducts surveys of the heads of public bodies to assess levels of collaboration

with departments in implementing this code (Smith, Maloney and Thornton,

2017[8]).

In Mexico, the National Productivity Committee has a mandate to raise

productivity, and has a forum for horizontal policy discussions. The committee is

an inter-ministerial body in which the Ministries of Education, Labour, Economic

Affairs and Finance participate, plus CONACYT, the National Council for

Science and Technology (OECD, 2017[9]).

Skills-related horizontal bodies exist in several countries as well, although they tend to

have been set up more recently, as governments become increasingly aware of the

transversal nature of skills policy.

In Norway in 2017, the government and social partners launched a National

Skills Strategy for the period 2017-2020, to ensure that the skills developed

promote a competitive business sector, an efficient public sector and an inclusive

labour market. The strategy includes the establishment of a Future Skills Needs

Committee, composed of a broad range of ministries, as well as stakeholders and

experts (Ministry of Education and Research, 2017[10]).



In Ireland, the government established a National Skills Council (NSC) as part

of a new infrastructure for skills policy that also involves a regional co-ordination

mechanism. It also strengthens stakeholder engagement, in particular regarding

the issue of assessing skills needs and the response of the national education and

training system to meet such needs (see Box 4.3). This example combines

mechanisms that address horizontal and vertical governance mechanisms, as well

as stakeholder engagement. It may be of particular interest to Portugal, as will be

outlined in this chapter’s recommendations.

Box 4.3. New multi-stakeholder skills bodies: Ireland

In 2016, Ireland issued a National Skills Strategy to 2025, which resulted in the

launch in April 2017 of a new infrastructure for skills, including a National Skills

Council and nine Regional Fora:

National Skills Council:

Composition: The Council is chaired by the Minister for Education and

Skills and includes representation from leading private-sector firms, high-

level officials from various ministries with social, economic and fiscal

portfolios, and the CEOs of key agencies, including the further education and

training agency, the Higher Education Authority, Quality and Qualifications

Ireland, Ireland’s inward investment promotion agency (IDA Ireland),

Enterprise Ireland and Science Foundation Ireland.

Mandate: The Council oversees research and advises on prioritisation of

identified skills needs and how to deliver on these needs. It promotes and

reports on how education and training providers respond to these needs.

Regional Fora:

Composition: The Department of Education and Skills appointed nine

Regional Skills Fora Managers, who are single points of contact for

employers in a region and are in charge of promoting regular collaboration

between employers and the education and training system at the regional

level.

Mandate: These managers i) provide a cohesive structure for employers and

the further and higher education system to work together to respond to their

regions’ skills needs; ii) help employers better understand and access the full

range of services offered by the education and training system; iii) enhance

links between education and training providers in planning and delivering

programmes, reducing duplication and informing national funding decisions.

Source: (Government of Ireland, 2016[11]).

Vertical co-ordination mechanisms can enhance the implementation of policy

Vertical co-ordination is particularly important in federal countries where sub-national

governments are responsible for education and skills (e.g. Canada, the United States,

Germany and Spain), but also in unitary countries moving towards increased

decentralisation (France, Italy, Spain and Portugal).



Regardless of their policy and administrative structures, countries like Portugal, with

significant local variations in economic and social contexts, need strong mechanisms to

promote co-ordination between national and local levels on the issue of skills.

Countries use a wide variety of mechanisms to support vertical, also called multi-level,

governance. Some of the most common include legislation, contracts, co-ordinating

bodies such as municipal associations or thematic working groups, and the use of ad hoc

informal meetings between levels of government (Charbit and Michalun, 2009[3]).

Importantly, performance measurement and implementation are also key instruments for

supporting co-ordination and capacity-building between different levels of government.

Contracts between different levels of government can be found in various OECD

countries. The following examples illustrate where such contracts focus on skills, either

as the main focus or as a part of a broader local economic development strategy. In other

cases, dedicated bodies promote vertical governance in skills policy.

In Canada, the federal government allocates large amounts of annual funding to

the provinces and territories to support adult-learning programmes, focused on

both return to employment and skills upgrading. These funds are set out in

bilateral agreements that stipulate both the agreed-upon objectives that the

funding should achieve, and establish key features of the programmes to be

delivered, while leaving a high degree of flexibility to each provincial or

territorial government to adjust programmes to meet the specific needs of their

adult population.

In France, six-year contracts set out funding flows from both the central state

and the regions, based on agreed-upon objectives that cut across a range of policy

priorities, such as infrastructure, higher education, environmental policy, digital

economy, territorial development and employment (Commissariat Général à

l'Egalité des Territoires, 2017[12]).

In the Netherlands, the Technological Pact, co-ordinated by the National

Science, Technology, Engineering and Mathematics (STEM) platform, offers an

example of a national-local governance mechanism that involves stakeholder

engagement. The long track record of such collaborative mechanism in the

country, and positive results in STEM enrolments, demonstrate the value of the

approach (see Box 4.4).



Box 4.4. The Technological Pact in the Netherlands: Multi-level governance to

increase the supply of STEM graduates

Scope/goals of initiative: The Technology Pact (Techniekpact), signed in 2013, is

an example of a multi-stakeholder partnership and multi-level governance co-

ordinated by a dedicated body, the National STEM platform.

The pact involves 60 partners, promoting co-operation between government,

industry and education providers (“triple helix co-operation”) in an attempt to

improve structural alignment between education and the technology job market

and to reduce the shortage of technically trained staff. The 12 main objectives of

the national Technology Pact cover the entire “talent pipeline”, from primary

education to the labour market. To achieve its objectives, the Technology Pact

relies on policy support and strategic co-ordination (rather than direct funding).

For example, existing funding instruments like the Regional Investment Fund

VET are used to (co-)fund specialised centres that facilitate public-private

partnerships that support the objectives of the Technology Pact.

Regional approach: Programmes and objectives within the pact are set at a

national level, but implementation is regional (and often sub-regional), creating a

strategic mix of “top-down” and “bottom-up” interventions. Co-ordinated by the

national platform, in close collaboration with regional partners, this approach

results in targeted initiatives in various formats that respond to regional

challenges, which are often translated into (sub-) regional pacts.

Results and lessons learned: The method has proven successful in various ways,

for example in increasing STEM enrolment in pre-university and higher

education. The longevity of the pact, which builds on work initiated in 1998 and

is focused on building on existing best practices, also demonstrates the value of

the approach. As a result of these outcomes, other countries have already

instituted pacts based on the Dutch model. The EU STEM Coalition, a network of

national STEM platforms, also promotes the model.

In Portugal, the strengthening of vertical governance mechanisms should build on current

efforts to encourage municipal actors to engage in skills and economic development

issues.

The involvement of certain intermunicipal communities (CIMs) in Portugal’s system of

skills assessment and anticipation (SANQ) is a positive step, noteworthy in the context of

a centralised state with no tradition of involving local-level authorities in policy making.

This pilot approach, which could be leveraged, demonstrates efforts to better link national

policy and local needs, and specifically to match the supply of skills with local labour-

market needs. The CIMs can also help promote horizontal partnerships among actors at

the local level, thus strengthening vertical governance, horizontal governance locally and

stakeholder engagement. The CIM do Ave, in the North of Portugal, provides an

interesting example of such practices (see Box 4.5).



Box 4.5. Improving vertical co-ordination: The role of CIM do Ave with SANQ

implementation

The Intermunicipal Community of the Ave region (CIM do Ave) is an association of eight

municipalities in northern Portugal, with a combined population of 425 411 people.

Creation of an intermunicipal education council: In 2013, CIM Ave created a council

of political representatives from its several municipalities, to develop a VET strategy for

the region, working with each municipality and the central government. The council has

developed several networks, including a network for co-ordinating the supply of

education and training, with all local education and training providers, and a network of

Qualifica Centres, to promote partnerships, develop common practices, train Qualifica

Centre professionals, and support the centres’ interaction with ANQEP and other central

bodies. CIM Ave was one of the pioneers in implementing the SANQ framework.

Role of CIM in SANQ implementation: The experience of CIM Ave with the SANQ

shows the benefits of building on the trust that municipalities have developed over the

years with local stakeholders. It also demonstrates the advantages of engaging

independent institutions to forecast future skills needs (in this case, a public university in

the region, the University of Minho). CIM Ave is also developing campaigns to fight the

stigma associated with VET and raise employers’ awareness of the advantages of a

skilled workforce. It is also building partnerships with the private sector, promoting

specialisation in the education and training supply of the region, and contributing to the

National Catalogue of Qualifications by proposing changes in the curricula of

qualifications relevant to the region.

Existing bodies and local networks can help increase stakeholder engagement

in adult learning at the national and local level

Stakeholder engagement is important for enhancing the relevance and sustainability of

policy in a wide variety of areas (OECD, 2010[2]; OECD, 2017[13]). For adult learning,

stakeholder engagement could help address several issues identified during the project,

including the need to i) align adult-learning policy and programmes with users’ needs,

ii) generate confidence in the value of the system, iii) raise the participation of users and

employers in the adult-learning system and iv) promote the sustainability of the system

across political cycles by sharing the responsibility for the adult-learning system between

government and stakeholders.

As for horizontal and vertical governance, the options for stakeholder engagement in

OECD countries are varied, ranging from informal meetings and networks to formal and

permanent mechanisms of engagement.

Consultative bodies are a common approach, and typically involve such stakeholders as

social partners, whose role is to provide non-binding advice to government. Consulting

such bodies can be made a requirement before the approval of legislation or key policies.

As noted earlier, these bodies are used in Portugal to provide advice on both education

and labour policies, but adult learning is seldom addressed by the two consultative bodies

focused on these issues, the CNEDU and CES.



By contrast, the role of Co-ordinating Council of the System for the Anticipation of Skills

Needs, created in 2014, is more directly relevant to adult learning. It includes

representation from key government bodies and agencies, employers and unions. Its core

mandate is to support the development and implementation of the SANQ. It could also be

further leveraged to strengthen ongoing stakeholder engagement in adult learning.

In Nordic countries, umbrella organisations represent the views on adult learning of

various actors, including providers, social partners and users (Desjardins, 2017[14]).

Denmark’s Council for Adult and Continuing Education advises government on work-

related competencies, particularly for the low-skilled. In vocational education and

training, engagement with social partners is particularly important (see Box 4.6).

Box 4.6. Stakeholder engagement in VET for youth and adults: The example of Denmark

Role of social partners in designing VET programmes: The National Trade

Committees (NTC), made up of labour-market organisations representing a sector’s

employers and employees, play an active role in assessing labour-market needs and

helping align supply and demand. Trade-specific committees dedicated to adult learning

have also been set up, which are mandated to respond to the needs of their stakeholders,

and propose new VET programmes. These proposals must include forecasts of necessary

skills, and estimate the employability of future graduates from the new programme and

the expected intake.

Role of consultative bodies in advising the Ministry of Education: Programme

proposals produced by the trade committees are presented to the Ministry of Education,

which considers the advice of the National Council on Initial Vocational Education and

Training or the National Council for Adult Education and Continuing Training before

making decisions. The curriculum results from an agreement between the proposing

committee and the ministry, and the committee is required to make regular evidence-

based recommendations to keep the programme abreast of changes in the trade in

question. The committee also plays a role in certifying training establishments.

Local perspectives: To ensure that local needs are adequately addressed, Denmark also

relies on local committees affiliated with local providers of VET. They include

representatives of local employers and employees appointed by the national committees,

and of students, staff and managers of institutions that provide instruction. These local

committees have an active role in adjusting the curricula of programmes supplied by local

providers, as well as the duty to maintain quality standards and ensure an adequate

number of traineeship vacancies for students.

Source: (Andersen and Kruse, 2016[15]).

Strengthening local networks can improve the accessibility and relevance of

adult learning

Stakeholders reported local-level relationships between various actors in adult learning in

Portugal as particularly important for promoting best practices and improving the

experience and outcomes of individual adult learners.

Strong local partnerships can draw on a dense network of local associations and

institutions. For example, there are about 1 000 youth associations are registered in



Portugal. Decentralised departments of the Portuguese Institute for Youth and Sports,

mainly through their Ponto Já youth information offices, co-operate with Youth

Guarantee local services. Stakeholders consulted during the project suggested that many

of these organisations, as well as youth workers, could be used as key points of contact

for information and guidance for learning for young adults, including those who are

neither employed nor in education or training (NEET) and not easy to reach through other

channels. Community associations are also widespread, which provide a “single door” to

adults in disadvantaged areas and refer learners to appropriate adult-learning services in

their area. Examples of such associations encountered during the project include the

Moinho da Juventude association in the Cova da Moura suburb of Lisbon, which targets a

local population of low-income migrants by offering tailored social support, including

connecting users to basic skills development opportunities.

The Qualifica Centres play a pivotal role in creating informal partnerships for adult-

learning opportunities that leverage a range of public, private and non-profit actors, often

without government involvement or specific legislative requirements (see Box 4.7).

Box 4.7. Informal partnerships in Portugal and their role in improving opportunities locally:

Examples from Qualifica Centres

During the project, nine Qualifica Centres shared best practices to improve awareness of

the benefits of skills, and the accessibility and quality of the adult-learning system.

Most of the best practices submitted involved the creation, expansion or more intensive

use of partnerships at the local level. These involve a large array of organisations,

including employers, educational institutions, municipal associations, health centres,

residents’ associations, youth associations, municipal libraries and housing associations.

Benefits of such partnerships were identified as:

Improving the capacity to reach out to learners proactively and directly in their

local community to provide tailored counselling and support. Approaches used

include staff traveling across the local area and placing staff in various partner

organisations throughout the community to deliver services. Impacts identified

include increased enrolment, retention and completion rates.

Facilitating the creation of cultural and craft activities involving community

members of all ages, helping local residents develop employability and

entrepreneurship skills and obtain educational qualifications. These activities and

events are also used as channels to promote the learning opportunities that are

available locally. Impacts noted include improvement in both soft and technical

skills, and employment outcomes.

Increasing the availability of work-based learning opportunities to learners,

resulting in improvement in professional skills.

Offering direct delivery of prior learning assessment and recognition and training

to SMEs owners and workers within companies, in sectors including

manufacturing, commerce and agriculture.

Source: Best practices provided to OECD by nine Qualifica Centres, July 2017.



To ensure such partnerships are systematic, countries have taken different approaches,

often involving significant involvement from both central government and the municipal

level – such as embedding the creation of local networks in national policy plans and

objectives, providing funding, or selecting the institutions to partner together.

In Germany, the Learning Locally Programme ran from 2009 to 2014, in about 40 local

governments. These were chosen in a competitive process with a view to promoting co-

operation between local governments and civil society stakeholders in creating

sustainable structures in educational monitoring, management and consulting, and

improving local capacities in knowledge management. This programme was considered a

success, thanks to its lasting impact (Busemeyer and Vossiek, 2015[16]).

In Portugal, an example of strengthening partnerships can be found in the requirement

that polytechnics develop networks with vocational schools (see Box 4.8). It could be

helpful to consider how such models could be expanded to adult learning.

Box 4.8. Local partnerships in Portugal: Polytechnics and vocational schools

Policy challenge: transition from vocational tracks to higher education

Portugal has a low rate of upper secondary graduates from vocational tracks who

transition to higher education. Although these students represent about 45% of all

upper secondary graduates, fewer than 1 in 20 move on to higher education

through the general access regime. One reason for this is that upper secondary

VET courses (ensino profissional) are not designed to prepare students to sit

national exams. Another issue may be the lack of pathways allowing individuals

to move between vocational and general education streams.

Policy responses: strengthening partnerships

To improve such transitions, successive governments have forged links between

professional upper secondary and post-secondary non-tertiary courses, and

between post-secondary courses and bachelor degrees.

Recently, a change was made to require that every polytechnic that offers the new

short-cycle tertiary courses (Cursos Técnicos Superiores Profissionais, or CTeSP)

develop a network with local professional schools. The objective is to improve

transitions of these students to these courses, which provide an entry point for

higher education at the bachelor level.

Polytechnics may also earmark some vacancies for CTeSP, and offer financial

incentives to upper secondary graduates of their partner institutions. For instance,

the Polytechnic Institute of Castelo Branco offers half off the tuition to the best

students of professional courses from partner institutions who enrol one of its

CTeSPs. These networks once required ministerial approval, but, since late 2016,

institutions have been free to develop them autonomously.



Recommendations

7. Set up dedicated governance bodies to oversee adult learning: a permanent

inter-ministerial team and a permanent group within an existing multi-

stakeholder institution.

Make the National Skill Strategy project team, which involves seven ministries

and four national support organisations, a permanent body.

o Select an appropriate ministry/centre-of-government agency for the new

Skills Team to report to.

o Include a mechanism for consulting local-level entities involved in the

planning of adult learning, such as CIMs, on a regular basis.

Consider creating a permanent skills council to steer adult learning taking a

whole-of-government and whole-of-society perspective over the long term.

o Ideally, position this group in an existing national advisory body that has

a secretariat and that involves participants from both government and

stakeholders, to avoid reduplication of governance bodies.

o Consider the Co-ordinating Council of the System for the Anticipation of

Skills Needs created in 2014, due to its core stakeholder participation

within and outside government, but also make it responsible for

monitoring results and reporting to the public.

For these two bodies:

o Ensure an appropriate legislative basis and clear mandate for action, with

public accountability requirements.

o Provide dedicated budget and staff support.

8. Reinforce existing local networks at the municipal level, or develop new ones,

to address current and future needs for skills that align with the local economic


Create or activate an appropriate number of local networks throughout Portugal

for regular collaboration between local actors, including municipalities;

intermunicipal communities; parishes; local enterprises; local trade

unions/employee representatives; chambers of commerce; sectoral councils for

qualifications; social service providers; community organisations; education and

training providers, etc.

The purpose of such networks would be to ensure a forum where key actors can:

o work with partners involved in implementing Portugal’s system of skills

assessment and anticipation (SANQ). Assess both short- and longer-term

economic and labour-market needs in the local area (e.g. both immediate

shortages reported by employers and the need to grow human capital to

move up global value chains).

o Develop plans to align local supply with identified needs.

o Seek to maximise policy synergies by, for example, ensuring that funding

targeted to regional development, both national and from the European



Union (EU), take into account skills needs. Conversely, ensure that skills

initiatives and funding support economic development.

Wherever possible, use an existing local organisation to host and co-ordinate

such local networks, and allocate dedicated funding to support the work of these

organisations to strengthen adult learning (e.g. for a small secretariat staff). This

funding should be linked to the relevant performance indicators.

o The Rede Social is an example of a local network bringing together

several community associations that, together with local education and

local youth councils, could form a basis for establishing such a network.

o Special attention should be paid to securing representation from the

demand side (employers and industry associations).

Develop a governance structure for the network (e.g. select a single co-ordinating

organisation) and targeted incentives, to allow all key stakeholders, and

employers in particular, to participate in these local networks (see

Recommendation 9 on “skills financing pact”).

Pilot the approach in two or three local areas for 12 months, then undertake an

evaluation before expanding the model.



References

Andersen, O. and K. Kruse (2016), “Vocational education and training in Europe – Denmark”,

Cedefop ReferNet VET in Europe reports,

http://libserver.cedefop.europa.eu/vetelib/2016/2016_CR_DK.pdf (accessed on

30 October 2017).

[15]

Bertelsmann Stiftung (2017), Sustainable Governance Indicators 2017 | Portugal Report,

http://www.sgi-network.org/docs/2017/country/SGI2017_Portugal.pdf (accessed on

4 November 2017).

[4]

Busemeyer, M. and J. Vossiek (2015), “Reforming education governance through local

capacity-building: A case study of the ‘learning locally’ programme in germany”, OECD

Education Working Papers, No. 113, OECD Publishing, Paris,

http://dx.doi.org/10.1787/5js6bhl2mxjg-en.

[16]

Charbit, C. and M. Michalun (2009), “Mind the gaps: Managing mutual dependence in relations

among levels of government”, OECD Working Papers on Public Governance, No. 14,

OECD Publishing, Paris, http://dx.doi.org/10.1787/221253707200.

[3]

Commissariat Général à l’Égalité des Territoires (2017), Contrats de Plan État-Région (CPER). [12]

De Macedo, J. and J. Martins (2008), “Growth, reform indicators and policy

complementarities”, The Economics of Transition, Vol. 16/2, pp. 141-164,

http://dx.doi.org/10.1111/j.1468-0351.2008.00323.x.

[5]


Strategies, Policies and Constraints, Bloomsbury Academic.

[14]

Government of Ireland (2016), Ireland's National Skills Strategy 2025,

https://rio.jrc.ec.europa.eu/en/library/irelands-national-skills-strategy-2025 (accessed on

3 November 2017).

[11]

Ministry of Education and Research (2017), Norwegian Strategy for Skills Policy 2017-2021,

Oslo, https://www.regjeringen.no/en/topics/education/voksnes-laring-og-

kompetanse/artikler/National-Skills-Policy-Strategy-2017-2021/id2516169/ (accessed on

20 December 2017).

[10]


OECD (2010), The Political Economy of Reform in 10 Countries, OECD Publishing, Paris. [2]

OECD (2014), Education Policy Outlook, OECD Publishing, Paris. [7]

OECD (2017), OECD Skills Strategy Diagnostic Report: Mexico, OECD Publishing, Paris. [9]

OECD (2017), OECD Skills Strategy Diagnostic Report: Italy, OECD Publishing, Paris. [6]

OECD (2017), Government at a Glance 2017, OECD Publishing, Paris,

http://dx.doi.org/10.1787/gov_glance-2017-en.

[13]

Smith, S., E. Maloney and D. Thornton (2017), “Cracking the code of good practice: A survey

of the relationships between public bodies and government departments”,

https://www.instituteforgovernment.org.uk/sites/default/files/publications/IFGJ5618-

Cracking-code-report-170726-WEB2-final_0.pdf (accessed on 9 December 2017).

[8]

5. EFFECTIVE FINANCING OF ADULT LEARNING IN PORTUGAL │ 133


Chapter 5. Effective financing of adult learning in Portugal

This chapter provides an overview of the financing of Portugal’s adult-

learning system, and recommendations for improving its performance.

Shifting priorities of governments in Portugal in the past decade have led to

variations in public funding. The reliance of adult-learning policy on

European structural funds is substantial, which raises concerns about the

long-term sustainability of the system. Financing mechanisms to stimulate

private investment and promote the quality and relevance of adult learning are

limited.

The chapter is divided into three parts. First, the current financing landscape

is addressed. Second, international examples of policies and practices to

tackle key challenges are described, including examples of financing

mechanisms to steer provision towards improving access and quality and to

stimulate private investment in adult learning. The third part outlines the

chapter’s recommendations for improving the financing of adult learning in

Portugal.

134 │ 5. EFFECTIVE FINANCING OF ADULT LEARNING IN PORTUGAL



The unpredictability of funding in the last decade has decreased the accessibility

of adult learning, and the ability to attract learners.

Financial incentives to encourage increased investments from individuals and

employers are one area where most new government funding is needed.

Concerns were expressed about the way funding can be used. Several

stakeholders emphasised the overly centralised nature of decision making on the

funding of adult-learning programmes. Centralised decision making, they argued,

makes it difficult to (i) use public funding to support tailor-made training

solutions, and (ii) for local providers to adjust their staff and financial resources

to respond quickly and adequately to demand.

Better financing mechanisms are needed to make adult learning more effective

Financing mechanisms are key policy levers for ensuring that the adult-learning system is

accessible and of high quality. In this chapter, the levels, sources and uses of adult-

learning funding are discussed, as they all contribute to shaping the adult-learning system

and its outcomes.

While the relationship between funding and participation is not automatic in the countries

with available data on adult-learning funding, a threshold level of funding for adult

learning is important to make the system viable, and enhance both access and quality (see

Box 5.1).

Appropriate cost-sharing between government, firms and employers can enhance total

investments, and help share costs as equitably as possible among the beneficiaries of

skills investments. The way funding is used, for example the level of targeting

governments adopt, and the mechanisms through which it is distributed, can influence the

performance of the system, and participation rates in particular (Desjardins, 2017[1];

OECD, 2017[2]).

State financing for adult learning is increasing after years of constraint, but it

could be used more strategically to promote access and quality

In Portugal, information collected during the project suggests that adult-learning funding

is characterised by three main features:

i) State investments have been fluctuating over the past decade, and public funding is

heavily reliant on EU funding.

ii) Adults seldom invest in adult learning.

iii) Firms commit an important part of funding through social security contributions

(SSCs) and an annual compulsory training requirement. However, according to some

stakeholders, employer-sponsored training tends to be of little relevance to firms’

productivity and to the employability of workers.



Box 5.1. Adult learning funding and participation: An international perspective

Existing data suggest that spending on adult learning from public and private

sources ranges from 0.6% to 1.1% of GDP across 18 OECD countries with

available data. Of these amounts, governments contribute about 0.1% to 0.2% of

GDP. Employers are the main funders of adult learning, typically providing

around 0.4% to 0.5% of GDP. Individuals spend around 0.2% to 0.3% of GDP.

No automatic correlation between funding and participation

Countries with the highest level of spending on active labour-market policies

(ALMPs), from 0.9% to 1.8% of GDP, such as Denmark, Sweden, Finland and

the Netherlands, also have the highest probability of participation in adult learning

among disadvantaged adults, with 35% to 42% of adults reporting having

participated in adult learning over the past 12 months.

However, countries like Austria, Belgium or Germany spend higher shares of

GDP on adult learning (0.7%-0.9% of GDP), than countries like Canada, the

United States and the United Kingdom (0.1%-0.3%), but they have lower

participation rates among disadvantaged adults (20%-25% as opposed to 25%-

30%). Countries achieving relatively high participation with lower expenditure

tend to target funding for a smaller group of people (the most disadvantaged).

Funding and outcomes: Insights from PISA

Not enough data are available to establish a relationship between funding levels

and outcomes in adult learning. The OECD Programme for International Student

Assessment (PISA) data show that in countries with cumulative expenditure per

student below USD 50 000 annually, the effect of spending is significantly

associated with higher PISA scores. But for countries with cumulative

expenditure above USD 50 000, like Portugal and most other OECD countries,

the effect of spending is not significant.

Source: FiBS and DIE (2013[3]), Desjardins (2017[1])

Public funding for adult learning has varied over the past decade

A preliminary inventory of public funding presents information for several years between

2006 and 2017 (Table 5.1). There is no single budget for adult learning, and defining a

clear scope for adult learning is challenging as noted in Chapter 1. For this reason, the

information presented in the table should be treated with great caution, as a first attempt

to identify adult-learning spending across various ministries. Due to these limitations, the

table does not provide total spending amounts for adult learning, or spending as a share of

GDP. The following insights can nevertheless be drawn from this exercise:

A large part of the overall spending on adult learning comes from European

structural funds. EU funding represents about 40% of the Ministry of Education’s

budget for adult education and training and of the budget of the Public

Employment Service (Instituto de Emprego e Formação Profissional, or IEFP).

The Ministry of Education budget for adult learning supports several key

programmes, such as the prior learning recognition processes (RVCC), the adult



education and training courses (EFA) and the operations of the Qualifica Centres.

Over the past ten years, this budget increased to peak at its highest level in

2009-2011 during the New Opportunities Initiative, a programme largely

supported by European funding. This budget was then reduced from 2012

onwards and began rising again in 2016, although reaching lower levels than

during the peak investments in around 2010. Nevertheless, in 2017, the budget of

the Ministry of Education for adult learning was about twice that of 2006.

Similarly, the budget of the organisation in charge of professional training for

public servants (INA) benefitted from a major increase in 2016.

The budgets for the IEFP (Public Employment and Vocational Service) and

Tourism of Portugal fluctuated throughout the period but to a lesser extent, and

only part of these budgets support adult learning, as noted in the table. By

contrast, the budget of the ANQEP declined throughout the period.

Table 5.1. Public funding for adult learning: A preliminary inventory

2006-2017, budgeted expenditures (in million euros)

2006 2008 2010 2012 2014 2016 2017 Notes Source

Ministry of

Education –

funding dedicated

to Adult Education

and Training

19.7 27.1 55.6 47.3 38.9 38.7 39.5 For 2017, includes RVCC, Qualifica Centres, secondary-level evening courses (ensino recorrente), education and training for adults (EFA) courses and other measures. In 2017, about EUR 15 million of the budget came

from EU funds.

(1)

Agency for

Qualifications and

VET (ANQEP)

Not

available

(n/a)

24.4 20.2 9.3 7.8 7.9 7.7 Note: includes total ANQEP budget, not only

activities focused on adult learning. In 2017, about

EUR 0.3 million of the budget came from EU

funds.

(2)

IEFP 1 029 797 1 120 918 959 939 853 Note: includes the total IEFP budget, including the

Cheque Formação. In 2016, of the total IEFP

budget, the budget supporting programmes

represented EUR 701 million. Of this, 58% was

spent on employment, 39% on professional

training, and 3% on professional rehabilitation.

Some initiatives, such as apprenticeship courses

(cursos de aprendizagem) are included in

professional training. These courses target only

the 15–25 year-olds and in 2016 represented EUR

67.5 million. In 2016, more than 40% of planned

expenditures were from EU funds.

(3)

INA 9.7 9.3 11.5 8.4 6.4 19.5 18.6 (4)

Tourism for

Portugal Institute

288 190 341 230 232 245 256 Note: includes total Tourism for Portugal budget,

not only activities focused on adult learning.

(5)

Ministry of

Economy

(n/a) (n/a) (n/a) (n/a) (n/a) (n/a) 71 The 2017 figure represents funding commitments through the COMPETE programme over 2 years to support 329 Formação-Ação (Action Training) projects starting in 2017 and administered by various business associations. EUR 16 million has been paid already by early 2018. This programme is funded by the Ministry of the Economy and other sources. Information for other years is not available.

(6)



Note: The figures represent budgeted expenditures, not executed budgets. Of note, budgets that are lower

when executed than when planned are common in Portugal. Only programmes with information publicly

accessible to the OECD team were included, hence some funding sources may be missing. Other funding in

the table, by contrast, supports activities beyond adult learning (e.g. the ANQEP, IEFP and Tourism of

Portugal budgets). Secondary VET courses (cursos profissionais) are excluded as they represent a large

programme mostly targeting youth. However, they are similar to the apprenticeship courses noted in table.

The importance of ensuring coherence between VET options for both youth and adults is noted in this report.

Sources: (1) for 2006 and 2008: Ministério da Educação (2006; 2008) Orçamento por Acções; for 2010:

Ministério das Finanças (2010) Relatório do Orçamento do Estado 2010; for other dates: Ministério da

Educação e da Ciência (2011, 2013, 2016) Relatório do Orçamento do Estado 2012, 2014, 2017 - Nota

Explicativa; (2) for 2008 and 2010: State Budget (Map VII); for 2012, 2014, 2016: ANQEP (2014, 2015,

2017) Relatório de Atividades 2013, 2014, 2016; for 2017: State Budget for 2017 Map VII; (3) for all dates:

State Budget Map VII and Instituto do Emprego e da Formação Profissional (2016) Orçamento Ordinário

2016. (4) for 2006: State Budget 2006 Desenvolvimento das Despesas dos Serviços Integrados; for 2008 and

2010: State Budget (Map VII); for other dates: INA Plano de Atividades 2012, 2014 and 2016 and 2017; (5)

for all dates: State Budget (Map VII); (6) information provided to OECD team by Ministry of the Economy.


The importance of public funding in Portugal

While there are various views about the role that the state should play in funding adult

learning (see Box 5.2), there are reasons for Portugal to ensure adequate levels of state

investment. These include:

Given the many low-skilled adults in Portugal, public spending is important to

ensure access. This is supported by past experience, where increases in public

spending occurred concurrently with a spike in participation (see Table 1.6 in

Chapter 1). Conversely, declines in public spending associated with the end of

the New Opportunities Initiative resulted in drops in participation, especially

among the low-skilled, as shown in Chapter 3 and the first phase of this project

(OECD, 2015[4]).

Improving the flexibility and quality of the system also requires adequate

financing, including for the targeted supports to help overcome barriers to

participation, retention and success discussed in Chapter 3. These can take the

form of targeted financial, social or academic supports, which can improve

outcomes.

Raising investments from individuals and firms would be likely to require public

supports as well: stakeholders who responded to the OECD survey on

implementation noted that the recommendations regarding financial incentives

would be the ones requiring the most new funding (see Annex C).

http://dx.doi.org/10.1787/888933712054



Box 5.2. The role of the state in funding adult learning: Various perspectives

Several arguments support focusing public funding on youth education rather than on

adult learning, and on lower levels of education, rather than higher levels of education:

There is a higher return to society of investments in youth rather than on adults.

The lack of information and short-term decision making are more frequent among

individuals at lower levels of education than those at higher levels.

The private returns to learning increase with the levels of education, thus

justifying greater investments on the part of individuals at these levels.

Arguments for increasing public funding for adult learning include:

Positive outcomes such as higher employment, lower skill inequality, or higher

innovation in companies can be observed in countries with large adult-learning

systems that involve substantial funding from all sources, including government.

Economic trends, such as increased market inequality, changing job

requirements, stagnant wages and ageing increasingly require government

intervention to update and raise the skills of workers.

Public funding is the only funding source, compared to funding from firms and

individuals, closely associated with increased participation rates.

Sources: (Oosterbeek, 2013[5]; Heckman and Jacob, 2010[6]; McCall, Smith and Wunsch, 2016[7];

FiBS and DIE, 2013[3]; Desjardins, 2017[1]).

Relying on EU funding has drawbacks

European structural funds play a key role in funding Portugal’s policy priorities as

outlined in the National Reform Programme (Programa Nacional de Reformas, or PNR),

the government’s medium-term economic strategy launched in April 2016, whose first

pillar focuses on raising the qualifications of the population.

However, the reliance of Portugal on structural funds for adult learning has three main

limitations. First, EU funding may decrease in the future, as the EU reconsiders its

priorities in a context of increased demands, from migration to security and defence. In

addition, the EU budget will be reduced by the United Kingdom’s departure (European

Commission, 2017[8]).

Second, as EU structural funds are time-limited and typically distributed through public

tenders, gaps exist in the provision of learning opportunities in between programming

periods, or when policy changes occur and require public authorities to apply for EU

funds and then to launch public tenders. As some stakeholders reported during the

project, one example of this challenge is the waiting time experienced by some adults

who wish to engage in training programmes and prior learning recognition, validation and

certification (Reconhecimento, Validação e Certificação de Competências, or RVCC),

but these are not available in their local area.

Third, the funding priorities and rules for the use of the funds, established for six years by

a given government, may change during the period. For example, the EU funds available

for adult learning during the 2007-2013 National Strategic Framework (Quadro de



Referência Estratégico Nacional, or QREN) were a major source of funding for the New

Opportunities Initiative. By contrast, the programme for 2014-2020 (Portugal 2020) has

refocused human capital funding on youth rather than adults, and dedicates a large share

of the total funding envelope to competitiveness and internationalisation efforts: about

41% of the Portugal 2020 envelope focuses on this theme, significantly above the EU28

average of about 27% (Agência para o Desenvolvimento e Coesão, 2016[9]).

While during the QREN, adult-learning programmes were funded through one main

operational programme, the funding for these programmes in Portugal 2020 is fragmented

across several thematic and regional operational programmes. According to stakeholders

met during the project, this change in funding focus and more complex funding structure

lower the amount of EU funding that the Portuguese government may use to support its

current focus on improving adult learning among the low-skilled.

On the other hand, the reliance on EU funding and increased focus of the European

Commission on outcomes in the current programming period has injected the need for

increased accountability and outcomes reporting in Portugal. This is an important feature

that should be enhanced and expanded to all-adult learning policies and programmes by

establishing a performance-monitoring and evaluation framework, as recommended in the

Chapter 3.

Results-based financing is limited, and the use of funds could be improved

In Portugal, public funding supports the delivery of a range of adult-learning programmes

to ensure accessibility, but is seldom used to encourage quality and outcomes. In addition,

formal education institutions, especially higher education institutions, lack incentives in

their funding models to target adult learners, except where demographic decline reduces

their traditional student base.

Performance contracts between the government and providers of adult learning are rare,

although they are starting to develop in the context of programmes funded by the

European Social Fund. Reasons include, in part, the lack of clearly defined policy

objectives for adult learning and outcomes indicators to measure success. This lack of a

systematic monitoring system limits the government’s ability to reward performance or to

identify practices that work, and then use funding to encourage expansion of practices

found to deliver results.

However, there is progress in this direction: in 2017, the ANQEP started to establish

service contracts with Qualifica Centres, although such contracts do not exist with other

providers of adult-learning programmes. This is a concern, as Qualifica Centres are not a

main provider of training: while they can counsel users, perform prior learning and

recognition processes, they need to partner with external organisations to deliver training.

At this point, these contracts focus exclusively on target numbers of clients to be served

by each Centre. Collecting data on the background of participants and their outcomes, and

assessing the value added of programmes as part of these contracts, would provide

important information. This could help to use funding strategically, for instance by

varying the intensity of funding based on various criteria, such as the background of

participants or the interventions shown to add the more value for participants

(e.g. increased skills levels, positive labour-market outcomes).

Implementation constraints also limit the use of funding as a strategic lever to promote

quality. The widespread practice in Portugal of disbursing funding for adult learning



through competitive processes (concursos) should, in principle, allow for a thorough

quality review of providers before allocating funding.

In practice, stakeholders reported that the time and human resources allotted to such tasks

is limited. The ANQEP, which plays a key role in selecting providers to be funded, has

been subjected to budget reductions in recent years (see Table 5.1). This issue was

highlighted by stakeholders regarding, for instance, the short window for establishing a

network of 300 Qualifica Centres across the country by the end of 2017. For some

stakeholders, this process amounted to largely reinstating previous providers, with little

opportunity for a new assessment of quality. The establishment of a monitoring process

managed by the ANQEP for all Qualifica Centres is an improvement in this regard, as it

can lead to corrective action or to closing low-performing centres if needed.

The investment of Portuguese adults in lifelong learning is limited

The contribution of individual learners to financing adult learning appears limited, for

several reasons. First, most programmes at secondary level and below are free of charge

for all participants. Second, almost all costs involved in employer-sponsored training are

borne by employers themselves (see Box 3.3 in Chapter 3). Finally, while adults

participating in higher education programmes at polytechnics or universities pay tuition

fees (see Box 5.3), the number of adults participating in higher education through the

“+23 route”, described in Chapter 3, and new post-secondary vocational routes, are still

largely pursued by younger students.

Box 5.3. Tuition fees in Portugal

In Portugal, higher education institutions enjoy broad autonomy. However, the financing

of public higher education and the setting of tuition fees are subject to a specific legal

framework (Law 37/2003).

In public higher education, the tuition for first cycles is fixed at a minimum value

corresponding to 1.3 times the national minimum wage and a maximum value calculated

from the application of the consumer price index of the National Institute of Statistics.

For the academic year 2017-2018, this maximum value is EUR 1 068.47.

In practice, stakeholders report that few public institutions charge the maximum tuition

fees. Polytechnics tend to have slightly lower fees than universities, at around EUR 700

to EUR 800 annually, according to stakeholders.

Costs for private institutions are freely established.

Source: Ministry of Science, Technology and Higher Education (2018).

Despite the higher expected returns than in many other OECD countries, few adults in

Portugal access higher education.

Several factors may explain this: first, in all countries, the rewards of investing in skills

decline with age, because individuals have less time left in the labour market to benefit

from the returns on their investment. Second, the very high returns of higher education

for government suggest that a large amount of the returns to higher education may be

taxed away in Portugal (OECD, 2017[2]). Third, stakeholders cited economic reasons that

have dampened interest in pursuing higher education, both during the crisis, due to the

costs of participation, but also in the recovery period. Many adults have adopted a “work-



first” strategy, rather than a longer-term skills updating and upgrading strategy. The

current return to growth may exacerbate this effect: in the past year, about 40% of new

jobs created were concentrated in the tourism sector, and these are likely to be low- to

medium-skilled jobs.

Other factors help to explain the low education levels of Portuguese adults, many of

whom are not prepared to access higher education and the barriers in the adult-learning

system itself, discussed in Chapter 2 and 3. These include insufficient accessibility and

flexibility of the supply for adults with busy schedules, a lack of financial and academic

support for adult students in higher education, and insufficient information about the

returns.

Setting aside compulsory participation as part of ALMPs, the financial incentives targeted

to individuals to invest their time and resources in adult learning are limited in Portugal,

regardless of the level of education or training considered.

The Training Cheque (Cheque Formação), created in 2015, is a subsidy targeted to either

employees or employers. This incentive is supported by a total investment of

(EUR 6.2 million and is expected to cover 75 000 learners). It provides firms and

employees with up to 50 training hours and EUR 175 per person, or up to 150 training

hours and a maximum of EUR 500 in the case of unemployed persons.

Results to date show that this instrument appears to be mostly taken up by employers

rather than individuals, which suggests the Training Cheque may assist with employers’

short-term needs (Aráujo, 2017[10]). The low participation of individuals implies, on the

other hand, that the incentive is not attractive to adult learners. While the reasons are not

clear, the low amount may be a contributory factor, since it is insufficient to assist adults

in pursuing opportunities that involve direct and substantive costs, such as higher

education, or to compensate for the opportunity cost of not working.

Companies contribute a large share of funding but it could be better used

Since 2009, employers have been more heavily involved in the financing of professional

training. Every employer contributes to social security with an amount equivalent to

23.75% of workers’ gross earnings, with an extra 11% borne by workers. Of these

contributions, 5% are set aside to finance active labour-market policies and to

professional improvement (valorização profissional). However, stakeholders reported

that the use of the funds collected through this levy was not fully transparent. The

perception was that the funds go to the state’s general revenues without a clear

understanding of how they support adult learning.

In addition, the cost of the required provision of 35 hours of training annually to

employees is mostly borne by employers (see Box 3.3. in Chapter 3). In 2015, the total

expenditure of companies in Continental Portugal on required employee training reached

EUR 229 million. Over half of this amount was spent by companies of 500 employees or

more, which represent 0.15% of all companies. There is wide variation in spending across

industries, with water and energy industries spending double this amount per trainee.

The average expenditure per trainee is slightly under EUR 400 annually, with an average

duration of training of 28 hours. A large portion of such costs covers hours not worked

during the time spent training. From an international perspective, Portuguese enterprises

are among those that have increased both the spending on training and hours of training

over time, which is likely to reflect the policy change introduced by the 35-hour training

requirement. In terms of enterprises’ direct expenditure for continuous training, Portugal



still ranked slightly below the EU28 average in 2010, despite a large increase since 2005

(Cedefop, 2015[11]).

The impact of employer incentives for providing training is unclear

In addition to the Cheque Formação, Portugal has several subsidies for employers that

provide support for training and other productive investments, and include a co-financing

element. Active Training (Formação Ação), discussed in Chapter 3, is a programme that

targets groups of small and medium-sized enterprises (SMEs). These participating SMEs

have the opportunity to explore coherent solutions to common problems or opportunities.

The programme also funds entities whose work is focused on SMEs, like business

associations, for instance, that may deliver a combination of training activities (for

employers and/or employees) alongside specialised consulting services, to improve

management in SMEs. The amount of the subsidy varies up to a maximum value per

beneficiary company of EUR 180 000 (AVISO Nº 6/SI/2016). Co-financing requirements

also vary, with the minimum amount of eligible expenses being EUR 100 000, and the

subsidy covering from 50% to 70% of eligible costs if funded by the state budget, and up

to 90% for micro and SME companies exclusively, through funding from the European

Social Fund.

There are also subsidies targeted to the training of entrepreneurs and workers, to improve

innovation and productivity through specific training-related projects. These subsidies

provide support for i) training associated with business investments in three streams:

innovation and entrepreneurship, qualification and internationalisation of SMEs, and

business R&D centres, ii) training associated with projects of modernisation of the public

administration and iii) “collective action” projects, which require several companies to

identify common challenges that allow them to use the subsidy to design solutions. These

subsidies cover costs of training, but also physical or immaterial investments.

Importantly, for this last type of subsidy, a share of financing by the firm is required, as

the subsidies cover from 50% to 85% of costs. Portugal uses a small portion of these

employer subsidies to promote training in micro-enterprises and SMEs and for disabled

or disadvantaged workers, by covering a higher amount of costs when the support is

targeted to these firms or workers.

Despite these provisions which encourage targeted investments, the lack of information

on outcomes makes it difficult to assess the effectiveness of these measures in meeting

their objectives.

Employer-sponsored training appears to be of limited relevance and quality

Despite increases in training amount and expenditure, stakeholders raised concerns about

the relevance of such training. Support from employers for more intensive vocational

programmes that involve work-relevant skills appears limited.

For example, while apprenticeship is an important way of providing work-based learning,

apprenticeship courses in Portugal target youth age 15 to 25 only. For comparison

purposes, the investment per apprentice in 2016 exceeded EUR 2 500, based on 2016

figures (see Annex A). This higher cost per student reflects a course structure similar to

secondary-level vocational education and training (VET) courses (cursos profissionais),

involving a longer duration than most adult-learning programmes and a combination of

school- and work-based components.



Apprenticeship is just one form of work-based learning, but it provides a good example

for understanding the drivers for employers to deliver this type of training. Box 5.4

provides an overview of the factors that may influence employers in their decision to

engage in work-based learning.

As noted in the previous chapter, employer representatives interviewed during the project

reported that many employers in Portugal do not see employee training as a strategic

investment for their business. They cited the immediate costs of training, both direct and

indirect, compared to the potential benefits, which accrue only in the longer term.

Another issue raised was the nature of specific sectors that make training more

Box 5.4. Costs and benefits of work-based learning: Making it work for employers

Mühlemann (2016[12]) and Kuczera (2017[13]) discuss the costs and benefits of

apprenticeship for employers, apprentices, government and society. Kis (2016[14]) focuses

on ways to engage employers in providing work-based opportunities for youth at risk.

Their findings help identify factors that have an impact on the costs and benefits of

training:

Size: While large firms may pay higher wages to trainees like apprentices, they

tend to recoup costs more easily via economies of scale.

Economic sectors: The net costs of providing training in technical occupations,

which represent the second highest expenditure for employers in apprenticeship

after the apprentice’s wage, are higher for technical than for other types of

occupation (e.g. commercial).

Parameters: These include first the duration of an apprenticeship, since it is the

balance of the growing productivity of the employee and the employee’s (often

growing) wage that determines the value of the initial investment over time.

Another factor is the wage of an apprentice, and the variation that can exist across

economic sectors and as a result of productivity growth. A third element is the

balance between time spent learning, in formal education contexts for instance,

and effectively contributing to productive work.

Financial incentives: These can be another motivating factor for employers to

engage; but universal subsidies have limited effects, and effective targeting is

complex and can have negative impacts on groups that are not targeted.

Non-financial incentives: These may have a key role to play, such as adjusting

the parameters of work-based learning, and ensuring appropriate programmes to

upgrade basic skills to improve trainees’ success and productivity before and

during work-based learning.

Economic and institutional context: Employers are likely to see apprenticeships

or other work-based learning approaches as more valuable in the context of

tighter labour markets and labour shortages, or when large gaps exist between the

wages of skilled workers and those of apprentices.

Sources: Kis (2016), Mühlemann, S. (2016), Kuczera (2017).



complicated or costly to organise, such as sectors where seasonal work is widespread.

Varying sectoral needs were also apparent, with a continued prevalence of low-skilled

activities among many Portuguese firms. Some stakeholders noted that many jobs in the

booming tourism industry required mostly stronger basic skills and certain technical

skills, but not necessarily a uniform rise in skill levels. Employers who described training

as a strategic investment tended to be part of sectors such as advanced manufacturing, or

of sectors that have increased their presence in internationally competitive markets

(e.g. the shoe sector).

Practices to improve the financing of the adult-learning system

Financing efforts should focus on sustainability and a strategic use of funds to

improve access and quality

Several tools can improve the sustainability and use of public funding

Enhancing the level of state funding is a difficult goal in the context of competing policy

priorities and constrained public resources, yet over-reliance on European funds can limit

the long-term sustainability of Portugal’s adult-learning system.

OECD countries have adopted different strategies to enhance the financial sustainability

of their adult-learning systems. Among these, three approaches discussed below may be

of interest to Portugal: i) improving opportunities for adults to achieve recognised

qualifications through formal and non-formal adult-learning programmes that make adult

learning an integral part of the education and training system, along with education,

higher education and active labour-market policies; ii) increasing the contributions of

social partners and individuals, and iii) doing more with fewer resources, through better

targeting. These approaches are not mutually exclusive, and can be combined, as will be

discussed later in the section.

Better connecting adult learning to other parts of the education and training

system

Nordic countries offer useful examples for Portugal, as they have achieved high rates of

participation in adult-learning programmes, as well as high rates of formal qualifications

attained through adult learning, which are two key objectives of Portugal’s Qualifica

Strategy.

For example, in Denmark, nearly 20% of the adult population has attained an ISCED 3 or

lower qualification by means of adult education programmes. In Norway, 12% of holders

of tertiary credentials have obtained them as adults. In these countries, similar patterns

emerge: strong government leadership in adult learning, through high levels of public

investment that have made possible a wide variety of training, and the promotion of a

clear government-wide vision for adult learning, largely shared among stakeholders

(Desjardins, 2017[1]).

Increasing the contributions of social partners and individuals

Non-formal adult learning, sponsored and often delivered by social partners, represents a

large share of all the learning undertaken by adults in Portugal and in other OECD

countries (see Figure 2.1 in Chapter 2). Given fiscal constraints, co-financing is often

used even in countries with large shares of public funding. As the benefits of skills



investments are shared by governments, individuals and firms, there is a strong argument

for all parties to contribute to cover the costs of adult-learning investments (see

Table 5.2).

Communicating the benefits of learning is therefore important, as noted in Chapter 2. The

table below provides a broad overview of the types of costs and benefits of skills

investments. This illustrates how assessing the returns of adult learning can help guide

cost-sharing between the various parties benefiting from skills investments.

Table 5.2. Costs and benefits of skills investments for government, individuals and firms

Government Individuals Firms

Costs

Foregone taxes

Education spending

Costs of scholarships and grants to students

Cost of skills-related tax expenditures for individuals and businesses

Foregone after-tax earnings during education

Direct costs, such as fees

Payments into training funds

Direct costs, such as fees

Cost of replacing the worker during training

Benefits

Higher taxes after education

Reduced spending on social benefits, including unemployment benefits

Higher economic growth

Higher after-tax wages

Better employment prospects

Better social and health outcomes

More productive workforce and higher profits

Potentially reduced social and health expenditure

Source: Adapted from OECD (2017), OECD Skills Strategy Diagnostic Report: the Netherlands, 2017.

Even when the returns of adult learning are difficult to assess, models exist to establish

reasonable cost-sharing approaches. Norway uses a strategy that links the primary funder

to the objectives of adult-learning programmes. In other words, the expected, rather than

the measured, returns guide the cost-sharing approach. This strategy is complemented by

active policy efforts to enhance the transparency and credibility of all adult-learning

activity, including non-formal learning (see Box 5.5).

In addition, public funding can be used to leverage private funding, especially from social

partners. Such mechanisms can take various forms, including agreed-upon plans between

government and social partners that contain both funding commitments and agreed-upon

objectives, as shown in the following examples, which were featured in a recent OECD

review of financial incentives (2017, p. 95[15])

In France, the Employment and Skills Development Actions programme aims to

help employers solve sectoral skills pressures. It provides government funding for

specific skills development projects, which are then designed and implemented

by social partners.

To implement this programme, a framework agreement is signed between the

government and an employer organisation to make funding available for various

training programmes. The amount of funding is negotiable and depends on the

nature of planned interventions, the size of firms involved, the degree of

disadvantage of groups targeted, and the extent of co-financing with employers.

The Netherlands’ sector plans: These instruments are temporary plans to help

overcome specific education and training challenges in certain sectors or regions,

such as a mismatch between the demand and supply of labour.



The social partners are heavily involved in drafting and implementing these

plans, and contribute a substantial share of the funding, but the state covers up to

50% of the total cost for a period of up to 24 months (36 months in the case of

“BBL” or work-based qualifications, a specific type of vocational training.)

Box 5.5. Norway’s approach to encouraging firms’ investments in skills

Co-funding according to objectives of programmes: Norway distinguishes

whether programmes provide basic skills, enhance job performance or support

worker mobility. The source of funding for each category is determined according

to the party that is expected to benefit the most from the programme – whether it

is primarily about government raising the basic skills of its population, firms

benefiting from productivity gains, or individuals enjoying higher mobility in the

labour market.

Establishing a more equal status for formal and non-formal education

Standards for learning outcomes: To improve the public confidence in

non-formal learning, the outcomes of both types of learning should be

captured in national standards for qualifications and skills. Norway is

developing a common approach to learning outcomes for the formal

education system and for workplace learning, and providing guidance for

companies on why and how to write learning outcomes.

A coherent adult-learning policy needs a skills policy framework:

These tools aim to provide a reference point for all stakeholders, by

documenting desirable skills for success, and describing how they are

acquired in working life.

Source: Information provided by Tormod Skjerve, Virke, Stakeholder Workshop in

Coimbra, 10 November 2017.

Collective bargaining arrangements also offer an opportunity to negotiate the financing of

training. Research has shown a link between unionisation and the provision of employer-

sponsored training in the United Kingdomand Germany, for example (Booth, Francesconi

and Zoega, 2003[16]; Dustmann and Schönberg, 2009[17]). Similarly, the existence of

bodies representing employees in companies (such as work councils in Germany) is

positively correlated with the provision of employer-sponsored training (Kriechel et al.,

2012[18]).

The higher level of employer-supported training may be explained in countries such as

the Netherlands or Germany where collective bargaining is a key decision-making tool,

compared to Portugal, which relies more on legislative frameworks. It does suggest that

negotiations between social partners can influence and improve both the financing and

relevance of training.

Targeting funding to basic skills and disadvantaged learners

In countries such as Canada, the United Kingdom and the United States, targeting policies

to disadvantaged groups have enabled the government to maximise the use of constrained

resources for specific policy goals.



Examples of ways to target public funding are diverse: they can take the form of limiting

access to certain adult-learning programmes, targeting more intensive and costly

interventions to key groups, while also often including a “preparedness” criterion. Other

countries have tuition for adult education programmes, even for basic training, which are

waived for people demonstrating financial need, typically those who are eligible for

social benefits. Examples of these two approaches are included below.

In England, adults who are out of work and meet the Education and Skills

Funding Agency’s eligibility criteria can access free training. This can include

units and full qualifications in English, maths and information and

communications technology (ICT). Where English is not a claimant’s first

language, English tuition is made available: 14% of all learning by benefit

claimants in 2013/14 was in English and mathematics (Kuczera, Hendrickje and

Windisch, 2016[19]).

In Ontario (Canada), the Literacy and Basic Skills Programme helps adults

develop communication, numeracy, interpersonal and digital skills. To be

eligible, participants must meet criteria such as: having literacy and basic skills

assessed at the start of the programme as being lower than the end of Level 3 of

the International Adult Literacy and Skills Survey (IALSS); be at least 19 years

old; and be proficient enough in speaking and listening in English or French to

benefit fully from the language of literacy and basic skills (LBS) instruction.

The three strategies can be combined, as the example of Denmark shows (see Box 5.6).

Public funding can also be used to increase access to adult learning and enhance

its quality

Public funding plays an important role in steering education and training systems towards

achieving governments’ policy objectives. A recent review identifies at least five funding

approaches governments use to nudge education and training providers towards various

goals, often to increase the labour-market relevance of training as well as the education

and employment outcomes.

These include: i) public subsidies to encourage the creation or expansion of programmes

in certain fields, ii) performance-based funding, iii) performance-based contracts, iv) the

regulation of new programmes, i.e. basing public funding for new programmes on

specific criteria, v) one-off capital funding, and vi) tuition fees (OECD, 2017[15]). Many of

these tools are relevant to adult learning. Table 5.3 provides brief country examples of

these tools, and outlines how they may be useful to promote adult learning.

Funding approaches designed to meet specific policy objectives need to be designed

carefully. For example, performance funding can have unintended effects, such as

inadvertently encouraging institutions to select students with the best chances of success

(“creaming”), which can impede the effort to serve adults who face barriers to learning.

To avoid this, it is important that steering tools consider a broad set of performance

indicators and criteria (see Annex B, for example). Focusing on the value added of

learning opportunities is also important. This way, it is progress towards gains in skills

that is rewarded, for instance, rather than the final level attained by learners, which may

reflect their pre-programme abilities.



Box 5.6. The financing of adult-learning courses in Denmark

Adult vocational training programmes (Arbejdsmarkedsuddannelser, or AMU) target

workers at all skill levels and deliver a range of skills (general, sector/job-specific, career-

related, etc.). The financing model for AMU courses is as follows:

Mostly public: As for other education institutions, providers of AMU receive

funding based on a “taximeter” system, which involves a block grant, taking into

account costs on a per-student basis. This is calculated primarily based on student

activity that results in passing examinations. Annual negotiations between

providers and the Ministry of Education set budgets and targets.

Individual contribution: There is a participant fee for most courses, of about

EUR 100 per week on average, generally paid by the employer. Unemployed

participants taking part in AMU as part of their individual employment plan are

exempt from fees.

Financial aid to participants, funded by all employers: Participants are

entitled to a fixed allowance, the state grant system for adult training (VEU

godtgørelse). In 2016, the amount available for this grant was DKK 3 344

(EUR 450) per week, or 80% of the maximum unemployment insurance benefit

rate. As most participants are employed and receive a full salary during training,

this allowance is primarily paid to employers as partial wage reimbursement.

As with apprenticeship training, expenditure for the allowances is covered by the

employers’ reimbursement scheme, to which all enterprises contribute a fixed

amount, regardless of levels of participation in adult education and continuing

training activities. Participants may also receive a transport allowance and

financial support for board and lodging.

Sources: (Andersen and Kruse, 2016[20]; Desjardins, 2017[1]).

Another risk relates to imposing financial penalties on providers, given that their scarce

resources may be part of the reason for their low performance. The overall weighting of

performance funding should thus be limited in scope, and include mechanisms to review

reasons for low performance and to design improvement plans.

Finally, the effectiveness of any financial incentives for providers depends on how well

they are implemented. Cases have been reported of institutions gaming the system by

reporting on certain indicators focused on quantity, at the expense of quality indicators

that are more difficult to measure. In other cases, demonstrating the existence of labour-

market demand, for example to advocate for creating and securing public funding for a

new learning programme, are mostly bureaucratic and lack strong evidence (OECD,

2017[15]).



Table 5.3. Using public funding to steer the provision of learning: Examples of tools and

relevance to adult learning

Country example Relevance to steer adult learning

Public subsidies

In South Australia, a subsidised training list shows the range of VET courses that may be publicly funded through the WorkReady initiative. Courses are assessed for their public value, taking into account a number of factors including: alignment with government priority industries, industry growth prospects, and the extent of the employment outcome from the qualification. The list is routinely updated.

Subsidies focusing on labour-market relevance and outcomes can be attractive to adult learners, given how important labour-market outcomes are in motivating adults to embark on further education.

Performance-based funding

Many US states use performance-based funding to encourage the provision and completion of courses, especially in science, technology, engineering and mathematics (STEM) subjects, health and education.

In Wisconsin, performance metrics reward the number of degrees and certificates awarded in high demand fields and the number of programmes or courses with industry-validated curricula. They also include a measure related to the rates of graduates employed in their field of study.

A focus on completing programmes can lead to an increased emphasis on providing student support. This can be relevant for adult learners, because low completion rates are often an issue for adults who have been away from formal learning environments for a long time, and have many constraints on their time (e.g. work, family).

Performance-based contracts

Performance contracts usually include mutually agreed targets between government and providers, and may or not include conditions for funding.

In Scotland, outcome agreements set out what colleges and universities plan to deliver in return for funding from the Scottish Funding Council. In outcome agreements for 2015-16, institutions committed to providing education that best meets Scotland’s changing social and economic needs. These include: offering more opportunities in STEM subjects, collaborating where possible on nursing training, and supporting the National Gaelic Language Plan.

Performance contracts can include a wide range of targets, presenting a “softer” instrument than performance funding. Targets can be designed to encourage access and success of adult learners (e.g. fields of provision, flexibility of delivery, academic support, etc.).

One-off capital funding

Funds are often used to expand facilities in fields requiring high investments, STEM and digital technologies. In some cases, they can be used to help build entirely new institutions.

In Italy, higher technical institutes have been set up in collaboration with the regions to rapidly respond to local economies’ demand for skills, particularly in technological areas covered by the Industry 2015 plan.

A robust network of physical institutions can play an important role in promoting adult learning, particularly when transport issues create obstacles (in cost and time spent) to participation.

Regulating new programmes (conditioning public funding for new programmes on specific criteria)

Regulating new programmes allow governments to direct new funds strategically. Increasingly, institutions have to show how their proposed programmes meet the needs of the labour market and other criteria.

In France, requests for new VET qualifications (which are most likely to originate in professional branches, but sometimes come from individual companies in certain sectors) are sent to the Ministry of Education. They must be supported by an “opportunity study” that sets out the economic/technological case for the new qualification, as well as its employment prospects.

The use of new funding offers an opportunity to encourage programmes that are designed from the start to support the participation and success of adult learners.

Tuition fees

Most countries regulate tuition fees, and many tuition fees depend on the field of study. These variations, however, are rarely used to encourage take-up in specific fields. In fact, fees are often higher for fields that are in high demand, offer high rewards and whose cost of delivery is high, such as engineering and medicine.

Levels of tuition fees should be considered together with financial aid available for individuals.

Tuition fees may affect adult learners disproportionately (e.g. worsen the opportunity cost of learning). Adults may also have limited access to financial aid, and have less time to capture the returns in the labour market. Financial support for individuals may thus be needed to help address cost barriers.

Source: Country examples from OECD (2017[15]).



Governments can also attempt to make sure that their entire network of education and

training providers supports the participation of adult learners. Viewing this from a

systemic perspective, they can combine funding and governance levers to extend the

mandate of certain publicly funded learning providers, to include, for example, a focus on

serving a more diverse student population, including adult learners.

In Canada and the United States, publicly funded community colleges play such a role.

The Canadian example is illustrated in Box 5.7.

Box 5.7. Community colleges in Canada

Main features and role: In Canada, community colleges offer access to good

post-secondary education relevant for the labour market to a diverse student

population, including older students, immigrants and disadvantaged students.

Some also offer programmes below post-secondary level, including upgrading to

obtain an upper secondary qualification and basic skills training.

Funding and governance:

Community colleges in Canada receive a large part of their funding from the

government. While in most provinces they also charge tuition fees, the public

funding offers government a potent lever for making sure colleges meet public

policy goals and increase the accessibility, quality and relevance to local labour

markets of post-secondary and second-chance learning opportunities.

The governance of community colleges also increases responsiveness to

government policy goals. Usually created by government, these colleges enjoy

less autonomy than universities, although they do have a high degree of flexibility

in operational matters.

The colleges are accountable to a broad range of local stakeholders. Governing

boards of colleges typically include representatives of employers, industry,

community groups, government, and in some cases faculty, staff and students.

Employers are also present on advisory bodies that oversee the development of

programmes, actively helping to shape the curriculum content.

Source: ADB (2015[21]).

Ensuring that serving adult learners is included in the mandate of formal education

institutions that receive public funding can be a powerful way of increasing the diversity

of opportunities available and the pathways to further studies at a more advanced level,

and also of helping to raise public confidence in the quality of adult-learning

opportunities.

In Portugal, polytechnics play this role, and could become more involved in delivering

quality adult learning. Stakeholders interviewed during the project emphasised the

importance of considering the potential of all higher education institutions, including

universities, to support adult learning, as a way of fulfilling their “third mission” to

contribute to the social and economic development of their local area.



Incentives for individuals and firms can be reinforced by careful design and

associating guidance measures

Incentives for individuals

Subsidies are the most commonly used type of tool government uses to promote specific

outcomes, such as increasing participation of specific groups of learners, or promoting

their participation in specific programmes (see Box 5.8). Subsidies include grants,

scholarships, bursaries, allowances, vouchers, training cheques and credits, and can be

targeted to various groups, such as low-skilled workers, the unemployed/inactive, etc.

Other tools that are less commonly used include savings and asset-building mechanisms

(e.g. individual learning accounts), time accounts, tax incentives, subsidised loans or

study leaves.

Subsidies are perhaps the most flexible tools for targeting specific groups

(e.g. disadvantaged students) or encouraging specific actions (take-up in specific fields,

timely completion of programmes, etc.). One important advantage of subsidies is that

they can benefit individuals even if their income is low. This is in contrast to tax credits

which individuals can take advantage of only if their income is above a certain threshold.

Such non-refundable tax credits exist in several OECD countries, including Portugal

(OECD, 2017, p. 43[2]). In this sense, the use of subsidies may be a useful channel for

government to promote investments in learning by low-skilled adults.

Subsidies do have drawbacks, however, since they require effective administrative

systems. Unlike tax incentives, they require sophisticated assessment methods, often

developed in higher education systems with high levels of student aid, to evaluate the

eligibility of students applying for aid and to allocate funds effectively to beneficiaries.

The more carefully subsidies are targeted; the more capacity they need to be well-

implemented. On the other hand, the absence of a targeting approach leads to

disproportionate take-up by highly skilled individuals who are already more likely to

pursue learning, and high deadweight costs (OECD, 2017[15]).

Several factors are worth considering in designing subsidies to encourage adult learning:

Amount of the subsidy: Small amounts, provided through subsidies or

individual learning accounts, tend to have a limited impact on participation

(OECD, 2017[15]; Oosterbeek, 2013[5]). The low amounts provided by the

Training Cheque (Cheque Formação) mentioned above may partly explain why

individuals so infrequently apply for them. The amount may not be enough to

motivate individuals to engage in learning, especially in programmes of longer

duration and those involving a fee.

Targeting of the subsidy to specific populations or skills: Subsidies such as

scholarships or grants are largely used in VET and higher education and are

typically targeted to specific groups, such as low-income individuals, or to

specific skills or fields, often those with high labour-market demand in STEM

subjects. Some countries combine these approaches, targeting both specific

populations and specific skills. Examples are provided in Box 5.8 (OECD, 2017,

p. 41[15]).

In Portugal, aligning the study interests of adult learners with the demands of

local labour markets was noted as a challenge. Targeting key groups may be

warranted, but certain types of training are considered critical for economic and



social success, including technical skills that are in demand and, most

importantly, training in literacy, numeracy and digital skills, as well as

transferable skills that stakeholders noted are lacking in Portugal but are essential

for resilience.

As noted, targeting can involve costly administrative burdens, and may

potentially reduce interest and buy-in. The example of Norway’s Basic

Competence in Working Life (BKA) programme is interesting, because it targets

both a specific population and a type of skill, but shifts to employers the

requirement to provide the incentive, according to set criteria (see Box 5.9).

Guidance measures: Training subsidies are used countries such as Australia,

Belgium, France, Germany, the Netherlands and the United States, but results are

limited. When results are positive, subsidies tend to be bundled with counselling

or guidance services (McCall, Smith and Wunsch, 2016[7]). This highlights the

need to combine financial and non-financial incentives for learning, including the

awareness-raising and guidance measures recommended earlier in the report.

Box 5.8. Subsidies promoting learning in initial education and in adult learning

Initial education – VET and higher education: different types of

targeting: In British Columbia (Canada), the British Columbia Access

Grant for Labour Market Priorities provides up to CAD 16 400 in up-

front grants and loan reduction. The grants target foundation programmes

and pre-apprenticeship programmes, primarily in STEM fields. They

include a specific focus on low-income students, but not on high

achievers.

In the United States, the National Science and Mathematics Access to

Retain Talent (SMART) provides up to USD 4 000 annually for studies in

STEM and foreign languages at tertiary level and target both low-income

students and high achievers.

In Australia (New South Wales), the “jobs of tomorrow scholarships”

provide AUD 1 000 over a four-year period to pursue VET studies in

STEM fields. The subsidy does not have specific targeting.

Adult learning – the UK government’s adult-learning loans

These loans aim to provide support to students who need it, while letting them

choose the courses that best suit them. It also aims to increase private investment

in learning and to encourage providers to be responsive to student needs.

The loans cover fees only, and are contingent on income. Repayments are made

based on income as well, not on the amount of the funds borrowed, and only start

when students earn about GBP 21 000 a year. Learners only pay 9% of any

income above that threshold. While no rigorous impact evaluation has been

conducted, 76% of students responding to a survey on the programme reported

that they would not otherwise have been able to pursue learning.

Sources: OECD (2017[15]), Department for Business and Skills (2016[22]).



Tax incentives are another important type of support for encouraging investments. These

are potentially easier for governments to administer and users to access. They can, in

theory, be more effective in encouraging skills investments with relatively low returns, as

the tax incentive provides a larger benefit than the tax that will be paid on returns.

However, they do have limitations. Their impact for high-return skill investments is

limited, as the returns on such investments are taxed away much more than any cost

offsetting by a tax incentive. Second, some of the advantages of tax incentives predicted

by economic theory do not translate into practice. For example, subsidies benefiting

learners with higher rather than lower incomes have a limited effect in encouraging low-

income learners to invest in their skills. Third, it is difficult to carefully target tax

incentives, and can lead to high deadweight effects. Finally, such incentives often target

workers’ current employment, potentially limiting the mobility of labour and

exacerbating skills mismatches.

Tax incentives, if they are used, need to be designed carefully. They must be clearly

designed and accessible, to encourage take-up. Further, they can be designed to

encourage various outcomes, such as timely completions of programmes or encouraging

learning in fields with promising employment and earnings prospects (OECD, 2017[2]).

Overall, focusing efforts on combining reductions in labour income taxation with

increased subsidies for disadvantaged individuals may be one of the most effective ways

to increase skills investments (OECD, 2017[2]).

Incentives for employers

Incentives for employers often involve similar tools as those discussed above for

individuals, such as subsidies and tax incentives. Employer-sponsored training has a main

advantage in principle, which is to support highly responsive labour-market relevant

training. However, it also has drawbacks.

One, noted earlier, is that employer-sponsored training may be too firm-specific and may

not address individuals’ broader needs (OECD, 2017[23]). The administrative burden

associated with accessing incentives, especially for SMEs, can also reduce take-up of

incentives.

In Portugal, employer-sponsored training involves a simple levy scheme based on social

security contributions and a requirement to provide 35 hours of training annually to

employees. The results of these schemes are mixed. First, training remains largely

concentrated in large firms and those that employ highly- skilled staff (e.g. water and

energy, finance and insurance). Small firms and those with large numbers of lower-

skilled staff (e.g. manufacturing and hospitality) are less likely to offer training.

Secondly, the type of training offered by firms in Portugal is too often of limited

relevance to firm productivity and does not increase workers’ skills. Many stakeholders

reported that the training was delivered mostly to comply with legislation, rather than for

business reasons.

Different approaches have been used to improve training in SMEs, and the impact of

training on both productivity and workers’ skills. First, levy schemes can be designed to

encourage employers to deliver more, better-quality training if they include certain

conditions. Countries such as Denmark, Greece, Korea, Italy, Poland and the United

States have designed levies allowing employers to recover the amount paid if they deliver

training. In the case of levy-grant schemes, they can even access larger training grants

than the costs entailed as a result of the levy. Another approach, used in Denmark, France



and the United Kingdom, are “train-or-pay” or “cost-reimbursement” schemes, where the

levy is reduced to zero if employers demonstrate that they have invested in training.

Levy approaches carry advantages from the government perspective. These include

leveraging resources from employers, ensuring a steady flow of funds to support training,

and enabling economies of scale if training is procured collectively. Levy-grants can also

provide an opportunity for government to encourage training in specific fields or towards

specific groups. Cost-reimbursement schemes may mostly increase the quantity, rather

than the specific type, of training: they provide more freedom to employers in that they

can choose the training delivered.

Levy schemes also have drawbacks. None fully avoid deadweight costs (which employers

may have spent on training in any case) or the issue that employers may deliver training

to qualify for a reduction in the levy or to access a grant, without intentional efforts to

deliver good, relevant training. These concerns have already been identified in the case of

Portugal’s levy.

Subsidies are another approach governments use to increase the provision of training,

including training of certain types (e.g. apprenticeship, foundational skills), and to

increase the quality and completion of training. Norway’s BKA programme provides a

useful example. It offers subsidies to employers to offer training to low-skilled workers,

who would typically benefit the least from training, but it also requires that the subsidised

training respond to employers’ business needs – two targeting elements that Portugal’s

programmes do not include, such as the Training Cheque, for example. Box 5.9 illustrates

how this programme works in practice.

Another approach, used in Austria, is to provide subsidies that encourage the provision of

specific types of work-based training that are proven to respond to labour-market needs,

such as apprenticeship. Austria promotes apprenticeship through the provision of

incentives, such as waivers of health insurance contributions for the first two years of the

apprenticeship, of accident insurance for the entire period of the apprenticeship, as well as

“completion” subsidies given at the end of each year of apprenticeship to the employer

(OECD, 2017, p. 78[15]).



Box 5.9. Norway’s Basic Competence in Working Life Programme (BKA)

Overview and objectives: Launched in 2006, this initiative is overseen by Skills

Norway (formerly Vox) and has several objectives. These are to: i) increase the

competence of employees with low levels of education, ii) prevent the risk of

exclusion from working life and society of individuals with low basic skills,

iii) meet both the needs of individuals and the workplace, and iv) in the long term,

increase both the offer and the demand of basic skills training for adults.

Approach: Any employer, public or private, can apply for funding for projects

that meet key criteria defined by the Ministry of Education and Research. These

are: i) basic skills training should be linked to job-related activities and learning

activities should be connected with the normal operations of the employer;

ii) skills taught should correspond to those of lower secondary school level.

Courses need to reflect competence goals in the Framework for Basic Skills for

Adults, and iii) courses should be flexible to meet the needs of all participants and

to strengthen their motivation to learn.

Participation: Steady growth in participation was achieved, with over 700

enterprises benefiting from the programme and over 30 000 participants to date.

Budget: The total amount allocated to this programme has increased from

NOK 14.5 million in 2006 to NOK 162 million (EUR 16.4 million) in 2017.

Funding is provided by the Ministry of Education and Research. Any employer in

Norway can apply for the full funding of training measures in reading, writing,

arithmetic, the use of ICT and, since 2014, oral communication.

Evaluation approach: Several tools have been developed to measure learning

outcomes and monitor the programme. Detailed information on participants is

collected (e.g. gender, formal education, industry, etc.) to ensure that the

programme reaches the targeted audience and in the long term, to facilitate impact

measurement.

An evaluation report from 2012 noted that more than 61% of participants were

over the age of 40, and 68% had upper secondary education as their highest

educational attainment. The majority of participants in ICT courses were women,

while men tended to receive more training in reading and writing.

Source: UNESCO Institute for Lifelong Learning, last accessed 22 August 2017,

http://litbase.uil.unesco.org/?menu=8&programme=126

Finally, to complement financial incentives and possibly to enhance their effect, Portugal

could consider additional approaches that do not require public funding:

Encouraging contractual solutions: Training contracts with pay-back clauses

are an example of this approach. Under these plans, individuals receiving training

paid by their employers agree to remain in the firm for a given amount of time or

to repay some of the investment. This can help reduce concerns around

“poaching”, i.e. losing a training investment if the employee leaves, and can be

beneficial to employers as shown in the case of the United States (Hoffman,

2011[24]). In the Netherlands, such approaches are increasingly used, reaching

47% of employees in 2015, up from 10% in 1999 (OECD, 2017[23]).

http://litbase.uil.unesco.org/?menu=8&programme=126



Leveraging public tenders to encourage work-based learning: The award of

public contracts can be made conditional on the provision of some type of

training. Examples of countries using such approaches include Norway,

Switzerland and the United Kingdom, using non-financial supports such as

guidance for employers on effective training. As noted earlier of apprenticeship,

training, if it is designed properly, can provide benefits to employers that

outweigh the costs. It could be helpful to provide information about these

schemes, and guidance to employers, especially in SMEs and micro-enterprises,

on how to implement this type of.

Information, guidance and partnerships: Demonstrating the value of

delivering high-quality, relevant training is a challenge in Portugal, especially

among SMEs, which often lack the capacity to undertake human capital planning

as part of their business and growth planning. Information would be valuable on

the returns to different types of training and guidance from public services

(including employment and Qualifica Centres) to improve the take-up of

government incentives. Further, encouraging the sharing of best practices and

training costs among employers at the local level can be helpful.

Ireland, for instance, has a 63 “Skillnets” networks. These groups of private

businesses in the same sector or region work together to offer training-related

activities they could not carry out on their own. These activities include

identifying the immediate and long-term skills needs of the network’s members,

finding training solutions and providing the training, promoting collaboration and

the exchange of best practices, and monitoring results, providing performance

indicators and quality standards for the training.

With the costs shared between government and employers, this approach was

found particularly helpful for employers and especially SMEs, by reducing the

administrative burden of training. Because government provides some funding, it

also requires that Skillsnet take into account government’s economic

development priorities, and evidence on effective training, as it develops its

activities (OECD, 2017, p. 91[15]).

Recommendations

9. Establish a stable and quality-oriented funding model through a “skills

financing pact”, including targeted financial incentives for learners, employers

and providers.

As a first step, develop an inventory of funding sources (national, EU, employer

expenditure, individuals’ expenditure), annual amounts and allocation methods for

distributing this funding to either education and training providers or end users.

Analyse the distribution of funding according to regions/local areas, demographic

characteristics of learners/employers covered, and the types of programmes.

Identify initiatives with greater potential for co-financing with employers.

Develop a “skills financing pact” signed by government and social partners that

establishes a multiyear (e.g. five-year) funding commitment that would be subsequently

renegotiated. This pact would lay out:



The respective roles of various actors in financing adult learning, including EU,

national and private sources, and notional amounts to be contributed, either as a

requirement (e.g. from the state budget) or as an “aspirational target”, in the next

five years.

Any co-funding requirement that could condition new employer-focused

subsidies to a specific financial contribution from employers. Such requirements

could vary based on company size and other factors.

The types of priority initiatives to be funded, in line with evidence-based need

and broader policy goals.

The types of entities eligible for funding, including individuals and employers.

High-level criteria and procedures for allocating funding to eligible entities, with

a focus on incentivising quality provision and co-operation (see below for further

suggestions).

Provisions to ensure funding to cover the delivery of programmes, administrative

costs and provide flexibility for managing human and financial resources at the

local level. Some funding may also be set aside for research and development in

adult learning to test innovative practices.

The pact should reflect the key objectives of the adult-learning policy and the

performance-monitoring framework. Robust monitoring of programmes is critical

for assessing the returns on investment made through the pact.

The pact should include incentives for providers to promote quality and co-operation:

Review the “+23 route” and assess the size of the demand of adults for higher

education. Incentivise universities and polytechnics to i) adjust the number of

places for adult learners to meet demand, and ii) provide support services to

increase the access, retention and success of adult learners.

Ensuring funding to providers for expanding the CTeSP can serve a larger and

more diverse population and address current gender and age imbalances. This

funding could also help build bridges with providers that deliver adult learning at

lower skill levels and may serve adults who may choose to pursue higher

education in future.

Use funding levers to encourage an adequate supply of adult-learning

opportunities, based on a robust assessment of skills demand now and in the

future.

o Levers might range from targeting new public incentives towards

programmes that serve specific populations, to performance contracts, or

the regulation of new publicly funded training programmes (e.g. by

conditioning public funding for new programmes on meeting certain

criteria – see the related recommendation 4 on high-quality programmes).

o Funding should also be used to support the system as a whole, for

example to promote strategic partnerships that support the alignment of

skills supply and demand, such as local networks.

Assess how providers of non-formal learning, ranging from employers to social

organisations, might be incentivised to provide quality training:



o Better target employer incentives (see Recommendation 10).

o Ensure that funding for social/community organisations supports high-

quality, relevant training, and is coupled with relevant accountability

mechanisms (see Recommendation 6 on key performance indicators).

10. Introduce targeted financial incentives for employers (specifically small and

medium enterprises) and individuals (specifically disadvantaged groups) to

encourage provision of, and participation in, training.

Review the effectiveness of current incentives for both individuals and

employers.

o Assess the impact on the productivity of both individuals and companies

of incentives, and whether training would have been undertaken even if

the subsidy had not been provided.

o Analyse the impact of the tax system, including the structure and

progressivity of the personal income tax and the amount of social

security contributions on the returns to skills (and thus the incentives

whether to upskill), and on the willingness of individuals to supply skills

to the labour market.

Consider larger and more targeted subsidies, using best practice to guide the

amount and mechanisms used. Targeting should focus on:

o employers who provide the least training and individuals who participate

the least.

o encouraging the provision and take-up of skills training with potentially

broader and longer-term effects (e.g. foundational and transversal skills).

o encouraging training in sectors of high demand that are aligned with the

country’s economic development goals, including those where shortages

currently exist or are expected to emerge in future.

When developing new incentives, involve individuals from target groups, to better

understand their motivation and increase effectiveness.

Strengthen complementarities between employment and training incentives for

the unemployed.

o For example, consider coupling current targeted hiring subsidies

provided through the public employment and vocation training service

(IEFP), such as those targeted to youth, the low-skilled and the long-term

unemployed, with incentives for employers to also train these

individuals.

Combine financial incentives with non-financial support (e.g. information,

guidance, staff capacity for advising target client groups).

Consider linking public procurement policies with requirements for successful

bidders, to provide a specified amount of work-based training, such as

apprenticeships, internships and other options, especially in sectors with

shortages/tight labour markets.



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[5]

A. MAP OF PORTUGAL’S ADULT LEARNING SYSTEM │ 161


Annex A. Map of Portugal’s adult learning system

This map aims to provide a snapshot of the adult-learning programmes in Portugal, along

two dimensions: the level of skills provided and the context in which they are delivered.

Quality assurance, information tools and data supporting the system are also included.

For the purpose of the National Skills Strategy Action Phase for Portugal, adults are

broadly defined as adults age 18 to 75. However, in many cases, the report focuses on

adults aged 25 to 64 for data availability purposes.

Adult learners are adults of 18 to 75 who are participating in learning that is:

formal, informal and non-formal

delivered by:

o education programmes (up to 12 years of schooling)

o post-secondary non-tertiary programmes

o tertiary education programmes

Focus on programmes targeting individuals who had a break in

their education pathway

Students in CTeSP (Cursos Técnicos Superiores Profissionais)

should be included

o employers in workplaces, also called “on-the-job” learning

o other types of training institutions targeting adults.

Sources:

National Project Team workshop on 24 March 2017

Ministry workbooks submitted to OECD in April-May 2017

Relatório Anual de Formação Contínua 2015

Statistics from Direção-Geral de Estatísticas da Educação e Ciência (2015-16)

Figures for Training Action were provided on 30 June 2017 by Ministry of

Economy

Figures for the National Reform Programme, Cheque Formação, Coop Jovem,

InCode and Indústria 4.0 were provided on 31 July 2017 by Ministry of Planning

and Infrastructure.

Note:

Budget figures are usually expressed in million euros (noted as EUR xM).

Where available, reference periods for participants or budget allocations are

noted.

Information provided is as received, with certain gaps for programme budgets

and number of participants.

EQF levels are equivalent to the National Qualifications Framework (QNQ)

levels.

162 │ A. MAP OF PORTUGAL’S ADULT LEARNING SYSTEM


Multi-ministry overarching policy initiatives – with impact on adult learning

Adult learning programmes by skill level (vertical axis) and delivery setting (horizontal axis)

NATIONAL REFORM PROGRAMME (NRP) 2016-2020 EUR 8 952M invested in Pillar 1 “Qualifications of the Portuguese Population” (2017) through government budget (EUR 3 601M) and Portugal 2020 (EUR 5 301M)

Through Portugal 2020, investments of EUR 2 302M in the Training and Qualifications of Adults

Empreende Já 630 participants (2016-18) EUR 3.3M (2018)

CET 6 299 students (2015-16) Delivered in vocational training centres, schools and other providers (not higher education institutions)

Higher education Total university students: 234 614 (2015-16) Total polytechnic students: 121 785 (2015-16) “+23” route: from 10 000 to 6 000 students between 2007-08 and 2013-14

CTeSP (in polytechnics) 6 430 students (2015-16) 11 048 students (2016-17)

Coop Jóvem:

EUR 13.9M; 2 700 participants

HIGHER LEVEL SKILLS

National Model of Recognition & Validation of Non-Formal Education for youth

INCoDE.2030 – DIGITAL SKILLS STRATEGY: Expected participants: 20 000 individuals INDUSTRIA 4.0 EUR 414M Expected participants: 50 000 enterprises

Training for SME managers

Action Training: EUR 70M

Business Empowerment Training; Financial training

Sector-specific. e.g. Creative Tourism Factory & Open Kitchen Labs

100 participants (both) INA (public service training)

Employer-sponsored training (35h annual requirement, according to Lei nº7/2009 of 12 February) About 880 000 workers (2015) More than EUR 229M

Cheque Formação EUR 6.2M

75 000 participants (target)

Policy and strategic planning:

Central Ministries (MEDU, MTSSS, MEcon, MF, MPI, MSTHE, MPA) & PMO

Agency Cohesion and Development

ANQEP

Co-ordinating Council of the System for the Anticipation of Skills Needs

Sector Qualifications Councils

Local planning and delivery:

CIMs

Municipalities

Qualifica Centres (QC)

IEFP Centres

Tourism Portugal schools

Schools

Higher education institutions (HEIs)

Local associations

Employers

Other private training providers

INA & National Governing System for Public Administration Training

High Commission for Migrations

National Youth Council

National Federation of Youth

Associations



Qualifica Centres EUR 129M for Qualifica Centres - 303 centres in 2018

Compulsory education: secondary (EQF 3 & 4)

Youth: 330 858 students in 2015/16 in tracks for youth (excluding Apprenticeship Courses), with 60% in academic stream and 40% in vocational stream (see table below for details)

Adults: 6 280 participants in Ensino Recorrente, + distance pilot (ESRaD): expecting 189 students (2017/18). Other tracks include: EFA, FMC and RVCC, totalling an extra 28 390 participants

Compulsory education: basic (first cycle to EQF 2):

986 022 students in 2015-16 in tracks for youth

831 participants in Ensino Recorrente (Other tracks for adults, see EFA, FMC and RVCC, totalling an extra

26 544 participants)

EFA courses 39 997 participants (2015-16), about half at EQF 3 to 4, half at EQF 2 or below

Apprenticeship courses (youth only) EUR 67.5M (2016) 26 010 participants (2015-16)

Vida Ativa, including Formação Modular, on-the-job training, RVCC 2016 (November): EUR 46M, 135 471 participants

2015: EUR 71M, 280 387

Prior learning assessment and recognition (RVCC) 12 288 participants (2015-16), about half at EQF 2 or below

LOWER LEVEL & BASIC SKILLS

Overarching education strategies: National Programme for School Success; Student profiles for the 21st century; Project for Curricular Autonomy and Flexibility

SYSTEM SUPPORT FEATURES System structure and quality assurance

National Qualifications System

National Catalogue of Qualifications

ANQEP (EQAVET/ECVET implementation)

MEDU policies

MTSSS – DGERT policies

MSTHE + A3ES policies

Information and guidance systems & tools SANQ Qualifica Passport Portal Qualifica Garantia Jovem website Information campaigns (e.g. Minuto Qualifica)

Data collection tools and systems

DGEEC, including SIGO

MTSS-GEP – Relatório Unico (companies), IEFP data, LFS

ANQEP

INA – Relatório de Gestão de Formação (RGF)

FORMAL LEARNING (MOSTLY IN EDUCATIONAL INSTITUTIONS) NON-FORMAL (MOSTLY IN LABOUR MARKET

COMMUNITY)

Tourism Portugal Schools Professional Training

7 500 participants (2016-17)

Formação Modular Certificada 399 participants (2015-16), 151 at EQF 2 or below

164 │ A. MAP OF PORTUGAL’S ADULT LEARNING SYSTEM


Name of programme

Description (from top left to bottom right)

Higher level and/or technical and transversal skills, formal delivery setting in educational institutions

National Reform Programme

Medium-term government strategy based on six pillars: i) Qualifications of the Portuguese population; ii) Innovation of the Portuguese economy; iii) Territorial promotion; iv) State modernisation; v) Enterprise capitalisation; vi) Cohesion and equality Investments in the Qualifications of the Portuguese Population focus on the following areas: i) Expansion of compulsory school and increase in educational success; ii) Expansion of the socio-economic profile of HE students; iii) Reform of professional higher education; iv) Adult training: Qualifica; v) Digital competencies

InCode 2030 Initiative to increase digital skills among the Portuguese population

Indústria 4.0 Initiative to promote the adoption of Indústria 4.0 by Portuguese companies

Higher education Includes all tertiary programmes EQF 6 to 8, ISCED 5 to 8

CTeSP Short-cycle tertiary education with 120 ECTS delivered in polytechnics

CET Vocational, post-secondary non-tertiary courses (EQF 5) with 60 to 90 ECTS, granting double certification, and delivered in several non-tertiary educational establishments.

Tourism for Portugal’s schools

Schools offering courses at EQF Levels 4 and 5, as well as continuous training in the fields of tourism, hospitality and culinary arts and sciences.

Higher-level and/or technical and transversal skills, mixed-delivery setting (formal, non-formal, informal) including labour market and community

Formação-Ação Programme for delivering management training in firms and promoting organisational change.

Business empowerment training

Actions to develop entrepreneurial skills and practices that facilitate management or lead to entrepreneurial projects.

Cheque Formação

Financial incentives to firms, employed and unemployed people wishing to participate in training.

Empreende Já! Programme supporting 18- to 29-year-old NEETs with at least compulsory education in developing and implementing a business project

Coop Jóvem Programme supporting 18- to 29-year-old NEETs with EQF 2 or greater in creating a co-operative

Employer-sponsored training (Formação Continua)

Training offered by companies to employees. Legal minimum of 35 hours per year, created by Lei nº7/2009 of 12 February.

Lower level and/or basic skills, formal delivery setting in education institutions

National Programme for School Success

Programme for schools to develop measures to increase quality, and decrease retention and drop-out rates.

Student Profile for the 21st Century

Reflection on the skills and educational that profile students should have acquired upon completing compulsory education, intended to serve as guidelines for educational policy – https://dge.mec.pt/sites/default/files/Noticias_Imagens/perfil_do_aluno.pdf

Project for Autonomy and Flexibility

Pilot programme for 2017-18 for interested public and private schools offering autonomy and flexibility in organising school hours and developing and implementing pedagogical projects

Compulsory – secondary education

Years 10-12, equivalent to EQF 3 or, in the case of double certification, EQF4. The two major tracks for youth are i) Regular Científico-Humanístico (EQF 3), for those

https://dge.mec.pt/sites/default/files/Noticias_Imagens/perfil_do_aluno.pdf



wishing to access higher education, with 206 346 enrolments in 2015/16 and ii) Cursos Profissionais (EQF 4), conferring a double certification, with 112 395 enrolments. Other tracks for youth are Cursos Tecnológicos (3 913), Cursos de Aprendizagem (26 010), Cursos vocacionais (5 244), Cursos CEF (506), and Ensino Artístico-Especializado (2 454). Tracks for adults at that level are i) Ensino Recorrente (8 530), ii) RVCC (6 280), iii) Formação Modular Certificada (248) and iv) EFA courses (19 612).

Compulsory – basic education

Years 1-9, divided into three cycles, 1st (1-4), 2nd (5 and 6, equivalent to EQF 1), and 3rd (7-9, equivalent to EQF 2). Tracks for youth are i) Regular (947 773), ii) Ensino Artístico Especializado (2 513), iii) Percursos Curriculares Alternativos (6 433), iv) Cursos Vocacionais (26 574), 5) CEF (2499) and 6) Cursos Profissionais (230). Tracks for adults at that level are i) Ensino Recorrente (831), ii) RVCC (6 008), iii) Formação Modular Certificada (151), and iv) EFA courses (20 385).

Ensino Recorrente

Courses in compulsory education (1st cycle to EQF 4) targeting those over the age of 15 wishing to finish basic education, and those over 18 wishing to finish secondary education. This track is adjusted to adults by offering flexible schedules, evening classes and distance-learning (including the pilot Ensino Secundário Recorrente à Distância, or ESRaD).

Programa de Formação em Competências Básicas

Set of short-term training units (50 hours each) for adults (aged 18 or over) lacking the most basic reading, writing and digital skills

Cursos de Aprendizagem

Courses targeting 15- to 25-year-olds who have not completed high school. They confer a high-school degree, and a dual certification of educational and professional attainment equivalent to an EQF Level 4.

EFA courses Courses for adults, ranging from EQF Level 1 to 4. Some offer a double certification, academic and professional.

Lower-level and/or essential skills, mixed-delivery setting (formal, non-formal, informal) including labour market and community

RVCC National system for recognising, validating and certifying academic or professional skills obtained throughout an individual’s life. Allows recognition from EQF Levels 1 to level 4.

Formação Modular Certificada

25- to 50-hour courses on specific subjects, enabling a flexible acquisition of skills, update of competences and requalification.

Vida Ativa Measure to boost an unemployed individual’s employability by offering tailored Formação Modular Certificada.

Qualifica Centres Access points to RVCC and career guidance. Open to all low-skilled adults and to those wishing to requalify – target up to NQF/EQF level 4. Aim to reach 600 000 to 1 million by 2020.

B. ADULT-LEARNING FRAMEWORK AND KEY PERFORMANCE INDICATORS │ 167


Annex B. Adult-learning framework and key performance indicators

Introduction

Recommendation 6 of this report proposes to develop a performance-monitoring and

evaluation system, including a set of key performance indicators (KPIs).

To facilitate the implementation of this recommendation, the OECD team has developed

i) an adult-learning framework for Portugal that can be used as a preliminary policy tool,

and ii) a preliminary list of KPIs, categorised by recommendation. These indicators are

meant to be illustrative and to help start a national discussion on the set of indicators that

should be developed to monitor the performance of the adult-learning system, based on

agreed-upon policy objectives.

The adult-learning framework

Purpose of framework

Developing an adult-learning framework helps to illustrate the relations and interactions

between different elements that, together, compose Portugal’s adult-learning system.

The framework could be used as a policy tool to: i) serve as the basis for the monitoring

of adult learning, by connecting performance indicators to the different components of the

adult-learning system (input-processes-outputs-outcomes), and ii) provide a systemic

overview of the various adult-learning initiatives to guide ongoing analysis, evaluation

and improvement of the components of the adult-learning system.

In the context of this report, the draft framework informed the analysis by identifying

available data, reflecting on relevant indicators, and supporting the assessment and

recommendations provided in this report.

Existing adult-learning frameworks

The framework builds on previous OECD work on adult learning, and builds on the

analysis of the Portuguese system developed in this report. Through a set of thematic

reviews conducted in the early 2000s, key features of strong adult-learning systems were

identified. Between 2005 and 2008, through country consultations, discussions and

analysis undertaken by a group of adult learning experts identified a list of 18 policy

goals in the domain of adult learning, in the following areas:

Develop skills for the knowledge society and economy, ensure basic skills for all

adults, and encourage lifelong learning for non-economic goals.

Reduce inequalities by improving demand for, access to and success in learning

opportunities for low-skilled, older persons in employment and society, and

others facing barriers or underrepresentation.

168 │ C. STAKEHOLDER PERSPECTIVES: IMPLEMENTATION CONSIDERATIONS


Enhance public and private investments and efficiency of adult learning, and

ensure an adequate supply of teachers and trainers.

Facilitate access by improving information and active guidance provisions.

Develop an appropriate certification system, tools, and support mechanisms to

support the recognition of skills, self-directed learning and prior learning

assessment.

Optimise modes of delivery while involving stakeholders and cross-sectoral

learning experience, encourage the provision of courses, ensure quality and

measure impact through evaluation strategies and teacher training.

In 2013, a theoretical framework for adult learning was developed that translated these

policy goals into a set of definitions and indicators to measure achievement of these goals

(Borkowsky, 2013). The draft adult-learning framework developed during the project is

largely based on the Borkowsky framework, but also combines insights from other work.

The goal is to optimise its effectiveness for the analysis of adult learning in Portugal, for

example the conceptual framework developed as part of the benchmarking higher

education system performance project (OECD, 2017). The European Commission and

UNESCO have also identified best practices and produced guidance on the indicators and

outcomes measurement (EC, 2015; UNESCO, 2015).

Changes to Borkowsky framework

The draft framework aims to adapt the Borkowsky framework (2013) to enhance its

usefulness for assessing the adult-learning system in Portugal. Changes were made to

address the following goals:

1. Leverage available data: Because Portugal did not participate in the first rounds

of the Survey of Adult Skills, non-OECD sources had to be used, which had

implications for the indicators. Eurostat databases were primarily used, most

notably the Adult Education Survey (AES), the EU Labour Force Survey (ELFS),

the Continuing Vocational Training Survey (CVTS), and CEDEFOP EU Skills

Panorama.

2. Assess performance of as many components of the system as possible: quantitative and qualitative data were identified to help assess components of the

system, in addition to final outcomes. These include, for instance, inputs such as

strong governance mechanisms. Information to help assess these types of inputs

or processes can be found for instance in the UNESCO Global Reports on Adult

Learning and Education (GRALE) and the Bertelsmann Stiftung Sustainable

Governance Indicators (SGI).

3. Balance simplicity and Portugal-specific information: Efforts were made to

keep the framework simple, to facilitate comparisons with other countries. At the

same time, elements known to be particularly relevant in Portugal were included

(e.g. the focus on educational attainment in the context section of the framework).



Figure A B.1. Adult-learning Framework: A potential policy tool for Portugal

Note: The numbers in red refer to the ten specific recommendations contained in the report. They indicate

which sections of the framework, and potential KPIs, are most relevant to each recommendation.

The colours indicate the general availability of data on the specific section, in terms of quality and quantity;

ranging from good availability (green), to mediocre availability (yellow) and no availability (red), indicating

the lack of outcome measurement.

Source: Add the source here. If you do not need a source, please delete this line.

Key performance indicators for recommendations

To support national reflections on performance measurement, the OECD team developed

a preliminary list of key performance indicators (KPIs) (see Table 1).

The 52 indicators were identified through a review of data available and indicators used

in the literature, and are directly linked to the 11 recommendations of the report (one

overarching and 10 specific recommendations), across the three areas of focus

(Awareness, Access and Quality, and Financing and Governance). In some

circumstances, the indicators reflect specific sub-recommendations, or refer to a specific

target group identified in a recommendation.

The purpose of the list of KPIs is to provide input for developing a monitoring and

evaluation system, which focuses on two dimensions:

1. Implementation: indicators that suggest the extent to which the recommended

policies have been carried out, often expressed in available financial and human

resources.

2. Effectiveness: indicators that indicate the effect of the implemented policies,

i.e. the extent to which the policy goal has been achieved.

Importantly, while efforts were made to propose indicators that can be measured with

existing data, not all the proposed KPIs can be measured using existing and/or readily

available data sources.

The proposed list thus aims to facilitate a discussion on the value of the proposed

indicators and the feasibility of implementing them in Portugal.



Figure A B.1. Key performance indicators (KPIs): A preliminary proposal

Policy goals Recommendation Category No. Indicator

Improving the performance of the adult-learning system

Overarching recommendation: Develop a coherent adult-learning strategy that encompasses existing and new measures.

Effectiveness 1 Participation rates of target groups in adult-learning system 2 Completion rates of target groups in adult-learning system

3 Impact of participation in adult-learning system on employability and wages 4 Impact of participation in adult-learning system on willingness to learn/future enrolment

Raising awareness of the value of skills and benefits of adult learning

1. Improve the collection, use and dissemination of information on skills performance and the returns to skills investments, building on existing tools.

Implementation 5 Financial resources for collection, evaluation and analysis of data on (returns of) adult-learning programmes 6 Human resources for collection, evaluation and analysis of data on (returns of) adult-learning programmes

7 Number of datasets on education and skills available as open data or with possible data linking

Effectiveness 8 Share of target groups with access to information on learning possibilities 9 Share of programmes with published information on quality and performance

2. Improve the dissemination of information by launching a comprehensive communication campaign to raise awareness of the value of skills and skills investments, as well as tailoring outreach for specific groups.

Implementation 10 Financial resources for adult-learning communication and awareness campaigns 11 Human resources for adult-learning communication and awareness campaigns

Effectiveness 12 Share of target groups willing to participate in adult learning 13 Change in share of target groups willing to participate in adult learning 14 Share of target groups looking for information on learning possibilities

15 Change in share of target groups looking for information on learning possibilities

3. Enhance measures targeting the public administration and providers of social services, to raise awareness of the value of upskilling for themselves and their clients.

Implementation 16 Financial resources for measures targeted to the public administration and social services providers for upskilling

17 Human resources for measures targeted to the public administration and social services providers for upskilling

Effectiveness 18 Existence of training or guidelines on the value of upskilling

19 Guidance and referral on upskilling for local staff

Improving access, quality and outcomes


Implementation 20 Resources (financial/human) available to implement quality assurance in adult learning 21 Resources (financial/human) available to implement the skills assessment and anticipation system (Sistema de

Antecipação de Necessidades de Qualificações, or SANQ) 22 Requirement of initial, pre-service qualifications and ongoing professional development for adult-learning

teachers 23 Number of quality-assurance audits performed annually

Effectiveness 24 Accessibility of adult learning; share of target groups not experiencing barriers 25 Participation rates of target groups in each adult-learning programme Policy goals Recommendation Category No. Indicator

26 Completion rates of target groups in each adult-earning programme 27 Impact of participation in each adult-learning programme on employability and wages



28 Impact of participation in each adult-earning programme on willingness to learn/future enrolment 29 Average time for completion of adult-learning programmes 30 Availability of programmes designed according to best practices (duration, work-based, flexibility) 31 Enrolment in VET by unemployed young adults 32 Number of Comunidades Intermunicipais (CIMs) that implement the SANQ


Implementation 33 Number of adult-learning providers 34 Availability of assessment to identify clients’ needs

Effectiveness 35 Efficiency of the whole system; input-output confrontation 36 Mismatch between demand for and supply of adult-learning opportunities

6. Strengthen quality assurance, including by developing a performance-monitoring and evaluation system, including KPIs.

Implementation 37 Existence of monitoring and evaluation framework and key performance indicators

Making governance more effective

7. Set up dedicated governance bodies to oversee adult learning: permanent inter-ministerial team and a permanent group within a multi-stakeholder institution.

Implementation 38 Existence of legislation supporting activities and accountability of programme 39 Financial resources for human resources

Effectiveness 40 Improved quality of general governance and co-ordination

8. Develop a model for local training networks at the municipal level to address current and future local economic development needs.

Implementation 41 Number of CIMs that implemented the SANQ

Effectiveness 42 Mismatch between demand for and supply of adult-learning opportunities on local level

Making financing more effective

9. Establish a stable and quality-oriented funding model through a “skills financing pact”.

Implementation 43 Financing adult learning; implementation of different cost-sharing schemes

Effectiveness 44 Total spending on adult learning as a share of GDP 45 CVT costs; share total labour costs and per participant 46 Resources per participant in adult learning

10. Introduce targeted financial incentives for employers (specifically small and medium enterprises, or SMEs) and individuals (specifically disadvantaged groups) to encourage provision and participation in training.

Implementation 47 Financing adult learning; implementation cost-sharing schemes for employers and individuals

Effectiveness 48 Share of costs for training covered by employer 49 Share of costs for training covered by employer in SMEs 50 Share of costs for training covered by employer in Manufacturing and Services sectors 51 VET: share of adult population (25+) enrolled in vocational/professional programmes 52 On-the-job training: Training enterprises as % of all enterprises, by type of training



References

Borkowsky, A. (2013), “Monitoring adult learning policies: A theoretical framework and

indicators”, OECD Education Working Papers, No. 88, OECD Publishing, Paris,

http://dx.doi.org/10.1787/5k4c0vxjlkzt-en.

European Commission (2015), An in-depth analysis of adult learning policies and their

effectiveness in Europe, Directorate General for Employment, Social Affairs and Inclusion,

Lisbon.

OECD (2003), Beyond Rhetoric: Adult Learning Policies and Practices, OECD Publishing,

Paris.

OECD (2005), Promoting Adult Learning, OECD Publishing, Paris.

OECD (2017), Benchmarking Higher Education System Performance: Conceptual Framework and Data, Enhancing Higher Education System Performance, OECD Publishing,

Paris.

UNESCO (2016), “3rd global report on adult learning and education: The impact of adult

learning and education on health and well-being; employment and the labour market; and

social, civic and community life”, http://uil.unesco.org/system/files/grale-3.pdf (accessed

on 31 July 2017).

http://dx.doi.org/10.1787/5k4c0vxjlkzt-en

C. STAKEHOLDER PERSPECTIVES: IMPLEMENTATION CONSIDERATIONS │ 173


Annex C. Stakeholder perspectives: Implementation considerations

An online survey was administered to the stakeholders invited to participate in the second

Skills Action workshop, held on 10 November 2017 in Coimbra.

Profile of respondents

Of about 80 participants in the workshop, 38 responded to the survey.

Most respondents (69%) are over age 45.

Most worked for education and training institutions (42%) or government (28%).

Most indicated they had more than 20 years of experience in their field (61%).

Of the participants, 83% reported they had significant or final decision-making

authority.

Figure A C.1. Characteristics of respondents, by percentage of total respondents


Relative importance of recommendations

Respondents were asked to categorise 10 of the 11 recommendations of this report (all

but the overarching recommendation that includes all other recommendations) on a five-

point scale, from essential to not important. All recommendations were identified as at

least very important. The figure below illustrates them in order of how frequently each

recommendation was viewed as “very important or essential”.

0

10

20

30

40

50

60

70

25-34 35-44 45-54 55-64 >65 Private Govt. Edu. Non-profit

Other <2 2-5 6-10 11-20 >20 Minimal Sign. Final

Age Type of organisation Years of experience Decision-makingauthority

%

http://dx.doi.org/10.1787/888933711959



Figure A C.1. Relative importance of recommendation, by percentage of respondents


Figure A C.2. Percentage of respondents who find recommendation very important or

essential, by type of organisation


Key findings

Respondents were asked to assess the funding and time required to implement each

recommendation, the institution that should lead implementation, and to rank from most

to least important seven conditions for success (see Figure A C.1 for full list of

conditions). Detailed answers by recommendation are included in Table A C.1).

Funding: There is a large variation in the estimated cost of implementing

recommendations, and a significant number of respondents reported that they

were not able to provide a cost estimate for one or more of the recommendations.

0 20 40 60 80 100

7: Set up dedicated governance bodies for adult skills

8: Develop or strengthen local networks to address skills needs

10: Introduce financial incentives to encourage training

3: Raise awareness of value of upskilling in public admin. and social…

2: Launch a communication and awareness-raising campaign

5: Improve pathways and the coherence of the adult learning delivery…

1: Improve the collection, use and dissemination of information

9: Establish a funding model through a “skills financing pact”

4: Improve supply of high quality, relevant, flexible learning programmes

6: Strengthen quality assurance via performance monitoring and…

%

Very important or essential Moderately or slightly important Not important

40

50

60

70

80

90

100

1: Improve the collection, use and dissemination ofinformation

2: Launch a communication and awareness-raisingcampaign

3: Raise awareness of value of upskilling in publicadmin. and social services

4: Improve supply of high quality, relevant, flexiblelearning programmes

5: Improve pathways and the coherence of the adultlearning delivery network

6: Strengthen quality assurance via performancemonitoring and evaluation

7: Set up dedicated governance bodies for adultskills

8: Develop or strengthen local networks to addressskills needs


10: Introduce financial incentives to encouragetraining

Education and training institutions Government or public administrationNon-profit organisationPrivate company

http://dx.doi.org/10.1787/888933711978

http://dx.doi.org/10.1787/888933711997



Of the 18 respondents who did provide an estimate, a large percentage indicated

that for Recommendations 5 (the delivery network), 7 (governance bodies for

skills) and 8 (local networks for skills needs), no new funding was required. On

the other hand, for Recommendations 4 (supply of learning programmes),

9 (the “skills financing pact”) and 10 (financial incentives), a large share

indicated that more than EUR 100 000 was needed, particularly for

Recommendation 10 on financial incentives (see Figure A C.3).

For some recommendations, the funding estimates given by different

stakeholders varied significantly. For instance, respondents from the private

sector attributed a much higher cost for implementing Recommendation 2

(an awareness-raising campaign), while respondents from non-profit

organisations found that Recommendation 9 (the “skills financing pact”) would

cost less than what was estimated by the other respondents.

Timing: Of the respondents, 75% indicated that they believed the

recommendations could be implemented within two years. On average,

Recommendations 2 (awareness-raising campaign) and 3 (awareness in public

administration and social services) were expected to take the least amount of time

to implement. Recommendations 9 and 10 on financing were expected to take the

longest amount of time to implement (see Figure A C.3).

Respondents from the government or within the public administration estimated

that implementing the recommendations would take, on average, longer than

other respondents’ estimates. For instance, they were five times more likely to

believe that recommendations would take, on average, more than three years to

be implemented than respondents from education institutions or non–profit

organisations.

One exception to this trend was the estimate of respondents from non-profit

organisations on Recommendation 5 (the delivery network), which they

estimated would take much longer than others estimated.

Lead institution: By close to half of the respondents, the National Agency for

Qualifications and Vocational Education and Training (Agência Nacional para a

Qualificação e o Ensino Profissional, I.P., or ANQEP) was designated as the

organisation best suited to become lead the implementation of the

recommendations.

Key conditions: In terms of the key conditions for a successful implementation,

political consensus around the recommendations was consistently ranked as the

most important (37% of the responses), followed by “the potential impact and

benefits of the initiative are clear to all stakeholders” with 24% (see Figure

A C.4).

Respondents from the non-profit sector reported more often that sufficient

funding was the most important condition for success. Respondents from private

institutions, in turn, were more likely to consider that political consensus around

the recommendations was the most important condition.



Figure A C.1. Funding and time required for implementation, by percentage of respondents


Figure A C.2. Key conditions for success, by percentage of times ranked as top condition, by

total and by type of organisation


18%

11%

18%25%

28%

A. Funding required

No new funding required

Less than EUR 10 000 per year

EUR 10 000 – 50.000 per year

EUR 50 000 – 100 000 per year

Over EUR 100 000 per year

33%

42%

13%

7%5%

B. Time required

Less than 1 year 1 to 2 years

2 to 3 years 3 to 4 years

4 years or more

-80 -70 -60 -50 -40 -30 -20 -10 0 10 20 30 40 50 60 70 80

7: Set up dedicated governance bodies for adult skills

5: Improve pathways and the coherence of the adult learning delivery…

6: Strengthen quality assurance via performance monitoring and evaluation

1: Improve the collection, use and dissemination of information

8: Strengthen local networks, or develop new ones, to address skills needs

2: Launch a communication and awareness-raising campaign

3: Raise awareness of value of upskilling in public administration and…


4: Improve supply of high-quality, relevant, flexible learning programmes

10: Introduce financial incentives to encourage training

%

C. Funding and time per recommendation

% > EUR 100 000 per year % > 2 years

0

5

10

15

20

25

30

35

40

45

50

Sufficient politicalconsensus

Clarity about theimpact and benefits ofimplementation for all

stakeholders

Motivation of nationaland local staff tomake it a priority

Sufficient funding Right skills of nationaland local staff forimplementation

Legislative provisionsrequiring actions from

parties involved inadult learning

Legislative provisionsproviding moreautonomy to the

parties involved inadult learning

%Total Education and training institutions Government or public administration Non-profit organisation Private company

http://dx.doi.org/10.1787/888933712016

http://dx.doi.org/10.1787/888933712035



Table A C.1. Implementation of recommendation: detailed views of stakeholders by recommendation

Importance Funding needed (annual) Time for

implementation Leading institutions

Key conditions for success (based on average

ranking)

Main

response

% very

important

or

essential

Main

response

% > EUR

100.000

Main

response

% >2

years

Primary

institution

Secondary

institution

Key condition

1

Key condition

2

Key condition

3

Recommendation 1: Improve

the collection, use and

dissemination of information on

skill performance and the returns

to skills investments, building on

existing tools.

Very

important

91% EUR 50 000 –

EUR 100 000

14% 1 to 2

years

27% ANQEP Public

Employment

Service

(Instituto de

Emprego e

Formacao

Profissional, or

IEFP

Sufficient political

consensus

Motivation of national and local staff to

make it a priority

Sufficient funding

Recommendation 2: Launch a

comprehensive communication

and awareness-raising campaign

about the value of skills and skills

investments, with tailored

approaches for specific groups.

Essential 88% EUR 10 000

– 50 000

32% Less than

1 year

17% ANQEP Ministry of

Education

Sufficient funding


consensus

Right skills of national and local staff for

implementation

Recommendation 3: Enhance

measures targeted to the public

administration and providers of

social services, to raise

awareness of the value of

upskilling both for themselves and

for their clients.

Very

important

84% EUR 50 000

– 100 000

32% 1 to 2

years

14% INA ANQEP/Ministry

of Education


consensus

Clarity about the impact and

benefits of implementation

for all stakeholders


make it a priority

Recommendation 4: Improve the

supply of high-quality, relevant

and flexible learning programmes.

Essential 94% > EUR

100 000

47% 1 to 2

years

22% ANQEP IEFP/INA Motivation of national and local staff to

make it a priority




Legislative provisions

giving more autonomy to

organisations involved in

adult learning Recommendation 5: Improve

pathways and the coherence of

Essential 88% No new

funding

11% 1 to 2

years

27% ANQEP IEFP Motivation of national and





Importance Funding needed (annual) Time for

implementation Leading institutions

Key conditions for success (based on average

ranking) the adult-learning delivery

network.

required local staff to make it a

priority

consensus benefits of implementation


Recommendation 6: Strengthen

quality assurance, including by

developing a performance-

monitoring and evaluation

system, including key

performance indicators.

Essential 97% EUR 50 000

– 100 000

13% 1 to 2

years

30% ANQEP IEFP Motivation of national and local staff to

make it a priority





implementation

Recommendation 7: Set up

dedicated governance bodies to

oversee adult learning: a

permanent inter-ministerial team

and a permanent group within an

existing multi-stakeholder

institution.

Essential 69% No new

funding

required

5% Less than

1 year

14% ANQEP Ministry of

Labour,

Solidarity and

Social Security

(MTSSS)


consensus





implementation

Recommendation 8: Reinforce

existing local networks, or

develop new ones, to address

skills needs in line with the

economic development context.

Very

important

77% No new

funding

required

24% 1 to 2

years

29% ANQEP Undecided Sufficient political

consensus


make it a priority




Recommendation 9: Establish a

stable and quality-oriented

funding model through a “skills

financing pact”.

Essential 94% > EUR

100 000

38% 1 to 2

years

38% ANQEP Ministries of

Finance/

MTSSS


consensus

Sufficient funding

Motivation of staff to make it

a priority

Recommendation 10: Introduce

targeted financial incentives for

employers (specifically SMEs)

and individuals (specifically

disadvantaged groups) to

encourage provision and

participation in training.

Essential 78% > EUR

100 000

79% 1 to 2

years

33% ANQEP Public

Employment

Service

(IEFP)/Ministry

of the Economy


consensus

Sufficient funding


make it a priority

D. ENGAGEMENT │ 179


Annex D. Engagement

The National Skills Strategy Action Phase involved ongoing oversight and input from an

inter-ministerial team (the National Project Team) co-ordinated by the Ministry of

Education and composed of expert advisors to seven ministers, as outlined in the table

below.

Six missions were organised between February and November 2017, including two

stakeholder workshops.

The European Commission was represented at the kick-off mission and at both

stakeholder workshops by Sonia Peressini, Michael Horgan, Jessica Vilela Hansraj from

the Directorate-General (DG) for Employment, Social Affairs and Inclusion, Patricia

Pérez-Gómez and Antonio García Gomez, from the DG for Education and Culture.

Table A D.1. National Project Team and Support Organisations

National Project Team

Nuno Serra Gabinete da Secretária de Estado Adjunta do Primeiro Ministro

Rui Lourenço Gabinete do Ministro da Presidência e da Modernização Administrativa

André Costa Monteiro Gabinete do Ministro das Finanças

Pedro Abrantes Gabinete do Ministro da Educação

Pedro Barrias Gabinete do Ministro da Ciência, Tecnologia e Ensino Superior

Alexandra Teixeira Gabinete do Secretário de Estado do Emprego

Inês Sequeira Gabinete da Secretária de Estado do Turismo

José Sequeira Gabinete da Secretária de Estado da Indústria

Susana Corvelo Gabinete do Ministro do Planeamento e das Infraestruturas

Support organisations

Agência Nacional para a Qualificação e o Ensino Profissional (ANQEP)

Instituto Nacional de Administração (INA)

Instituto de Emprego e da Formação Profissional (IEFP)

Agência para a Competitividade e a Inovação (IAPMEI)

Direção-Geral de Educação (DGEEC)

Turismo de Portugal

180 │ D. ENGAGEMENT


Table A D.2. Stakeholders engaged during the project

1. Kick-off seminar – Lisbon, 9-10 February 2017

Refine focus for Action Phase among Ministers

Tiago Brandão Rodrigues, Ministro da Educação

Manuel Heitor, Ministro da Ciência, Tecnologia e Ensino Superior

João Costa, Secretário de Estado da Educação

Miguel Cabrita, Secretário de Estado do Emprego

João Vasconcelos, Secretária de Estado da Indústria

Fernando Rocha Andrade, Secretário de Estado dos Assuntos Fiscais


2. Fact-finding meetings – Lisbon, 22-24 March 2017

Map the current adult-learning system in Portugal

National Project Team and support organisations

Experts from the General-Directorate for Education (Direção-Geral de Educação, or DGEEC (education statistics), the Office for Planning and Strategy, Ministry of Finance (Gabinete do Planeamento, Estratégia, Avaliação e Relações Internacionais ,or GPEARI), National Innovation Agency

3. Fact-finding meetings – 3 and 5 May 2017

Bilateral meetings with academics in education and labour economics: Luísa Cerdeira (University of Lisbon), Ana Balcão Reis (New University of Lisbon), Ana Luísa de Oliveira Pires (Polytechnic de Setúbal), Miguel Portela (University of Minho), Pedro Texeira (University of Porto)

Visit to Polytechnic of Setúbal and secondary school Marquês de Pombal, Lisbon

4. Fact-finding meetings 26-30 June 2017, Porto, Beja, Lisbon

Meetings with employers in Porto:

Centro de Formação Profissional das Indústrias da Madeira e Mobiliário

Associação Empresarial de Portugal, Industry representation (SMEs)

Associação Portuguesa dos Industriais de Calçado, Componentes, Artigos de Pele e seus Sucedâneos (shoe and leather industries)

Instituto Politécnico do Porto

Associação dos Industriais Metalúrgicos e Metalomecânicos de Portugal

IEFP

Modatex (Centro de Formação Profissional da Indústria Têxtil, Vestuário, Confecção e Lanifícios)

Comunidade Intermunicipal do Ave

Associação Têxtil e Vestuário de Portugal

Centro Tecnológico do Calçado de Portugal

Meetings with multiple stakeholders in Beja:

Polytechnic of Beja

Centro Qualifica, Agrupamento de Escolas No. 2 de Beja

Associação Empresarial do Baixo Alentejo e Litoral

IEFP Alentejo

Bilateral meetings in Lisbon:

Conselho Económico e Social

Conselho Nacional de Educação

Instituto Nacional de Administração

Confederação Geral dos Trabalhadores Portugueses – Intersindical Nacional (CGTP – IN)

Managing Authority for the Human Capital Operational Programme of the European Social Fund

Meeting with National Project Team on draft recommendations (30 June 2017)

5. Recommendations discussion mission, 9-10 October 2017

Obtain feedback on draft recommendations

Meeting with National Project Team on revised recommendations (9 October)

Meeting with key statistical agencies:

ANQEP

MTSSS

ME – DGEEC

Instituto Nacional de Estatística (INE)



Stakeholder workshops:

Lisbon, 4 May 2017, on current system challenges

Coimbra, 10 November 2017, on recommendations and implementation

Note: Organisations in attendance at both workshops are noted with two asterisks (**). Those present in Coimbra are marked with a single asterisk (*). The remaining organisations were present in Lisbon only. International experts participated in the workshop: Beatrice Boots, National STEM Platform, the Netherlands and Tormod Skjerve, Virke, Federation of Norwegian Enterprises.

Government and central public bodies and institutions:

Note: For ministries, there was representation of both government cabinets and public services.

Ministério da Educação, Direção-Geral de Educação (DGEEC)**

Ministério do Trabalho, Solidariedade e Segurança Social, Direção-Geral do Emprego e das Relações de Trabalho (DGERT)**

Ministério da Ciência, Tecnologia e Ensino Superior**

Ministério da Economia, Agência para a Competitividade e a Inovação (IAPMEI) **

Ministério do Planeamento e das Infraestruturas, Agência para o Desenvolvimento e Coesão, I.P (AD&C)

Ministério das Finanças, GPEARI**

Ministério da Presidência e da Modernização Administrativa**

Gabinete do Secretária de Estado Adjunta do Primeiro Ministro

Instituto Português do Desporto e Juventude **

Instituto Nacional de Administração (INA)**

Agência Nacional para a Qualificação e o Ensino Profissional (ANQEP)**

Instituto do Emprego e da Formação Profissional (IEFP)**

Turismo de Portugal

Agência para a Modernização Administrativa, I.P. (AMA)

Compete 2020


Agência para o Investimento e Comércio Externo de Portugal (AICEP)*

Local government:

Câmara Municipal de Guimarães

Comunidade Intermunicipal (CIM) do Tâmega e Sousa*

Câmara Municipal de Abrantes*

Comunidade Intermunicipal (CIM) do Alto Minho*

Education and training providers:

Agrupamento de Escolas (AE) Henriques Nogueira**

Escola Secundária (ES) Felismina Alcântara

Centro Qualifica (CQ) - ES Henrique Medina**

AE Azeitão

CQ – Delta Cafés

EP Imagem

CQ – ES Marquês Pombal**

ES Cacilhas-Tejo**

AE Virgínia Moura

AE Gil Vicente

AE Cristelo**

Escola Comércio Lisboa

Centro de Formação Profissional da Indústria Metalúrgica e Metalomecânica (CENFIM)

CQ Poeta Joaquim Serra*

Centro de Formação Profissional para o Comércio e Afins (CECOA)**

Escola Profissional Amar Terra Verde*



Escola Comércio Lisboa*

AE Vergílio Moura – Guimarães

Centro de Formação Especializado nas Areas do Artesanato e Património (CEARTE)*

CQ Profiforma*

Associação Portuguesa de Ensino Superior Privado*

CQ – Centro de Serviços e Apoio às Empresas (CESAE)

Programação NeuroLinguística (PNL)

Higher education institutions and academics:

Escola Superior de Educação de Lisboa*

Instituto Politécnico de Leiria*

Instituto Politécnico do Cávado e do Ave

Instituto Politécnico Setúbal

Universidade do Porto, Faculdade de Psicologia e de Ciências da Educação*

Universidade de Coimbra , Faculdade de Psicologia e de Ciências da Educação**

Universidade de Évora**

Universidade Nova de Lisboa, Faculdade de Ciências e Tecnologia

Universidade do Lisboa, Instituto de Educação

Instituto Universitário de Lisboa (ISCTE)

Instituto de Engenharia de Sistemas e Computadores, Investigação e Desenvolvimento em Lisboa

Trade unions:

Confederação Geral dos Trabalhadores Portugueses – Intersindical Nacional (CGTP- IN)

União Geral de Trabalhadores (UGT)

Federação Nacional da Educação (FNE – UGT)**

Federação Nacional dos Professores (FENPROF – CGTP)

Employer associations and private companies:

Confederação Empresarial de Portugal – CIP

Huawei

Delta Cafés

Confederação Turismo Português

VW Autoeuropa**

Associação de formação para a Indústria (ATEC)**

Confederação de Agricultores de Portugal (CAP)

Associação Empresarial para a Inovação (COTEC)**

Avillez restaurantes

Grupo Salvador Caetano**

Deloitte

Pólo das Tecnologias de Produção (Produtech)**

Portugal Telecom

Hotéis Vila Galé*

Confederação do Comercio e Serviços de Portugal*

Associação Empresarial de Portugal (AEP)*

Youth Training Consulting

Civil society:

Associação Portuguesa para a Cultura e Educação Permanente (APCEP)

Associação Portuguesa de Educação e Formação de Adultos (APEFA)

Rede Inducar**

Fundação Aga Khan**



Associação Nacional de Escolas Profissionais (ANESPO)*

1. Kick-off seminar – Lisbon, 9-10 February 2017

Refine focus for Action Phase among Ministers

Tiago Brandão Rodrigues, Ministro da Educação

Manuel Heitor, Ministro da Ciência, Tecnologia e Ensino Superior

João Costa, Secretário de Estado da Educação

Miguel Cabrita, Secretário de Estado do Emprego

João Vasconcelos, Secretária de Estado da Indústria

Fernando Rocha Andrade, Secretário de Estado dos Assuntos Fiscais


2. Fact-finding meetings – Lisbon, 22-24 March 2017

Map the current adult learning system in Portugal

National Project Team and support organisations

Experts from the General-Directorate for Education (Direção-Geral de Educação, or DGEEC (education statistics), the Office for Planning and Strategy, Ministry of Finance (Gabinete do Planeamento, Estratégia, Avaliação e Relações Internacionais ,or GPEARI), National Innovation Agency

3. Fact-finding meetings – 3 and 5 May 2017

Bilateral meetings with academics in education and labour economics: Luísa Cerdeira (University of Lisbon), Ana Balcão Reis (New University of Lisbon), Ana Luísa de Oliveira Pires (Polytechnic de Setúbal), Miguel Portela (University of Minho), Pedro Texeira (University of Porto)

Visit to Polytechnic of Setúbal and secondary school Marquês de Pombal, Lisbon

4. Fact-finding meetings 26-30 June 2017, Porto, Beja, Lisbon

Meetings with employers in Porto:

Centro de Formação Profissional das Indústrias da Madeira e Mobiliário

Associação Empresarial de Portugal, Industry representation (SMEs)

Associação Portuguesa dos Industriais de Calçado, Componentes, Artigos de Pele e seus Sucedâneos (shoe and leather industries)

Instituto Politécnico do Porto

Associação dos Industriais Metalúrgicos e Metalomecânicos de Portugal

IEFP

Modatex (Centro de Formação Profissional da Indústria Têxtil, Vestuário, Confecção e Lanifícios)

Comunidade Intermunicipal do Ave

Associação Têxtil e Vestuário de Portugal

Centro Technológico do Calçado de Portugal

Meetings with multiple stakeholders in Beja:

Polytechnic of Beja

Centro Qualifica, Agrupamento de Escolas No. 2 de Beja

Associação Empresarial do Baixo Alentejo e Litoral

IEFP Alentejo

Bilateral meetings in Lisbon:


Conselho Nacional de Educação

Instituto Nacional de Administração

Confederação Geral dos Trabalhadores Portugueses – Intersindical Nacional (CGTP – IN)

Managing Authority for the Human Capital Operational Programme of the European Social Fund

Meeting with National Project Team on draft recommendations (30 June 2017)

5. Recommendations discussion mission, 9-10 October 2017

Obtain feedback on draft recommendations

Meeting with National Project Team on revised recommendations (9 October)

Meeting with key statistical agencies:

ANQEP

MTSSS

ME – DGEEC

Instituto Nacional de Estatística (INE)



Stakeholder workshops:

Lisbon, 4 May 2017, on current system challenges

Coimbra, 10 November 2017, on recommendations and implementation

Note: Organisations in attendance at both workshops are noted with two asterisks (**). Those present in Coimbra are marked with a single asterisk (*). The remaining organisations were present in Lisbon only. International experts participated in the Coimbra workshop: Beatrice Boots, National STEM Platform, the Netherlands and Tormod Skjerve, Virke, Federation of Norwegian Enterprises.

Government and central public bodies and institutions:

Ministério da Educação, Direção-Geral de Educação (DGEEC)**

Ministério do Trabalho, Direção-Geral do Emprego e das Relações de Trabalho**

Ministério da Ciência, Tecnologia e Ensino Superior**

Ministério da Economia, Agência para a Competitividade e a Inovação (IAPMEI) **

Ministério do Planeamento e das Infraestruturas, Agência para o Desenvolvimento e Coesão, I.P (AD&C)

Ministério das Finanças, GPEARI**

Ministério da Presidência e da Modernização Administrativa**

Gabinete do Secretária de Estado Adjunta do Primeiro Ministro

Instituto Portugês do Desporto e Juventude **

Instituto Nacional de Administração (INA)**

ANQEP**

IEFP**

Turismo de Portugal

Agência para a Modernização Administrativa, I.P. (AMA)

Compete 2020


Agência para o Investimento e Comércio Externo de Portugal (AICEP)*

Local government:

Câmara Municipal de Guimarães

Comunidade Intermunicipal (CIM) do Tâmega e Sousa*

Câmara Municipal de Abrantes*

Comunidade Intermunicipal (CIM) do Alto Minho*

Education and training providers:

Agrupamento de Escolas (AE) Henriques Nogueira**

Escola Secundária (ES) Felismina Alcântara

Centro Qualifica (CQ) - ES Henrique Medina**

AE Azeitão

CQ – Delta Cafés

EP Imagem

CQ – ES Marquês Pombal**

ES Cacilhas-Tejo**

AE Virgínia Moura

AE Gil Vicente

AE Cristelo**

Escola Comércio Lisboa

Centro de Formação Profissional da Indústria Metalúrgica e Metalomecânica (CENFIM)

CQ Poeta Joaquim Serra*

Centro de Formação Profissional para o Comércio e Afins (CECOA)**

Escola Profissional Amar Terra Verde*

Escola Comércio Lisboa*

AE Virgilio Moura – Guimaraes



Centro de Formação Especializado nas Areas do Artesanato e Património (CEARTE)*

CQ Profiforma*

Associação Portuguesa de Ensino Superior Privado*

CQ – Centro de Serviços e Apoio às Empresas (CESAE)

Programação NeuroLinguística (PNL)

Higher education institutions and academics:

Escola Superior de Educação de Lisboa*

Instituto Politécnico de Leiria*

Instituto Politécnico do Cávado e do Ave

Instituto Politécnico Setúbal

Universidade do Porto, Faculdade de Psicologia e de Ciências da Educação*

Universidade de Coimbra , Faculdade de Psicologia e de Ciências da Educação**

Universidade de Évora**

Universidade Nova de Lisboa, Faculdade de Ciências e Tecnologia

Universidade do Lisboa, Instituto de Educação

Instituto Universitário de Lisboa (ISCTE)

Instituto de Engenharia de Sistemas e Computadores, Investigação e Desenvolvimento em Lisboa

Trade unions:

Confederação Geral dos Trabalhadores Portugueses – Intersindical Nacional (CGTP- IN)

União Geral de Trabalhadores (UGT)

Federação Nacional da Educação (FNE – UGT)**

Federação Nacional dos Professores (FENPROF – CGTP)

Employer associations and private companies:

Confederação Empresarial de Portugal – CIP

Huawei

Delta Cafés

Confederação Turismo Português

VW Autoeuropa**

Associação de formação para a Indústria (ATEC)**

Confederação de Agricultores de Portugal (CAP)

Associação Empresarial para a Inovação (COTEC)**

Avillez restaurantes

Grupo Salvador Caetano**

Deloitte

Pólo das Tecnologias de Produção (Produtech)**

Portugal Telecom

Hotéis Vila Galé*

Confederação do Comercio e Serviços de Portugal*

Associação Empresarial de Portugal (AEP)*

Youth Training Consulting

Civil society:

Associação Portuguesa para a Cultura e Educação Permanente (APCEP)

Associação Portuguesa de Educação e Formação de Adultos (APEFA)

Rede Inducar**

Fundação Aga Khan**

Associação Nacional de Escolas Profissionais (ANESPO)*

ORGANISATION FOR ECONOMIC CO-OPERATIONAND DEVELOPMENT

The OECD is a unique forum where governments work together to address the economic, social andenvironmental challenges of globalisation. The OECD is also at the forefront of efforts to understand and tohelp governments respond to new developments and concerns, such as corporate governance, theinformation economy and the challenges of an ageing population. The Organisation provides a settingwhere governments can compare policy experiences, seek answers to common problems, identify goodpractice and work to co-ordinate domestic and international policies.

The OECD member countries are: Australia, Austria, Belgium, Canada, Chile, the Czech Republic,Denmark, Estonia, Finland, France, Germany, Greece, Hungary, Iceland, Ireland, Israel, Italy, Japan, Korea,Latvia, Luxembourg, Mexico, the Netherlands, New Zealand, Norway, Poland, Portugal, theSlovak Republic, Slovenia, Spain, Sweden, Switzerland, Turkey, the United Kingdom and the United States.The European Union takes part in the work of the OECD.

OECD Publishing disseminates widely the results of the Organisation’s statistics gathering andresearch on economic, social and environmental issues, as well as the conventions, guidelines andstandards agreed by its members.

OECD PUBLISHING, 2, rue André-Pascal, 75775 PARIS CEDEX 16

(87 2018 02 1 P) ISBN 978-92-64-29867-5 – 2018

OECD Skills Studies


OECD Skills Studies


Raising skills is critical to Portugal’s economic success and social well-being. As globalisation and digitalisation are transforming how people work, how societies function and how individuals interact, Portugal needs to equip its entire population with strong skills so that they can benefit from new opportunities.

Portugal has put education and skills at the forefront of the political agenda for many years, but more than half of adults have not completed upper secondary education. With the population ageing rapidly and a growing skills divide between generations, Portugal needs to further strengthen its adult-learning system. To make change happen, Portugal will need a clear vision for the adult-learning system and a strong partnership between all stakeholders – all levels of government, education and training providers, employers, trade unions, the non-profit sector and learners.

This report outlines areas where the accessibility, flexibility and quality of the adult-learning system can be improved, where governance and financing mechanisms can be strengthened, and provides examples of international and national good practice to help achieve these objectives. The report provides a series of concrete actions to help Portugal improve the adult-learning system and in turn enhance economic growth and social cohesion.

ISbn 978‑92‑64‑29867‑587 2018 02 1 P

Consult this publication on line at http://dx.doi.org/10.1787/9789264298705-en.

This work is published on the OECD iLibrary, which gathers all OECD books, periodicals and statistical databases. Visit www.oecd-ilibrary.org for more information.

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